Administração Pública e Gestão Do Poder Judiciário

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FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)
ADMINISTRAO PBLICA E GESTO DO PODER JUDICIRIO / PUBLIC ADMINISTRATION AND MANAGEMENT OF THE JUDICIARY
SUMRIO / SUMMARY
APRESENTAES PRESENTATIONS
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CARLOS IVAN SIMONSEN LEAL A EVOLUO DA DEMOCRACIA ATRAVS DA ADMINISTRAO PBLICA THE EVOLUTION OF DEMOCRACY THROUGH PUBLIC ADMINISTRATION
GILMAR MENDES A IMPORTNCIA DO CONSTANTE APRIMORAMENTO DO PERFIL DA ADMINISTRAO PBLICA E DO PODER JUDICIRIO BRASILEIRO THE IMPORTANCE OF THE CONSTANT IMPROVEMENT OF BRAZILIAN PUBLIC ADMINISTRATION AND JUDICIAL SYSTEM
FLAVIO VASCONCELLOS O DESAFIO DA CRIAO DE UM MODELO DE GESTO EFICIENTE THE CHALLENGE IN CREATING AN EFFICIENT MANAGEMENT MODEL
LUDGER SCHRAPPER O SERVIO PBLICO COMO EMPREGADOR: FUNO E PERSPECTIVAS DA FORMAO PROFISSIONAL PARA O EXERCCIO DE EMPREGO PBLICO NA ALEMANHA THE PUBLIC SERVICE AS AN EMPLOYER: FUNCTION AND PERSPECTIVES OF PROFESSIONAL TRAINING FOR PUBLIC OFFICES IN GERMANY
RAINER FREY A ADMINISTRAO PBLICA NA ALEMANHA: A MODERNIZAO COMO TAREFA CONTNUA PUBLIC ADMINISTRATION IN GERMANY: MODERNIZATION AS A CONTINUOUS TASK
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KATRIN MLTGEN O GERENCIAMENTO DEMOCRTICO DA GESTO PBLICA THE DEMOCRATIC MANAGEMENT OF PUBLIC MANAGEMENT
MICHAEL BETRAMS A GESTO ESTRATGICA E A OTIMIZAO DE PROCESSOS STRATEGIC MANAGEMENT AND PROCESS OPTIMIZATION A JURISDIO DA CONSTITUIO FEDERAL NA ESTRUTURA ALEM THE FEDERAL CONSTITUTIONAL JURISDICTION IN THE GERMAN STRUCTURE
APRESENTAES / PRESENTATIONS
CESAR CUNHA CAMPOS DIRETOR DA FGV PROJETOS DIRECTOR OF FGV PROJETOS
O Brasil vive um momento de expanso econmica que, atrelado ao processo de globalizao, proporciona importantes oportunidades de reconhecimento no exterior. Aos poucos nos estabelecemos como uma das grandes potncias mundiais e nos tornamos referncia em questes de equilbrio econmico, desenvolvimento e inovao. Esse reconhecimento favorece a troca de experincias com outras culturas e regimes que tm o objetivo comum de contribuir para a legitimao do crescimento e do desenvolvimento de seus pases e suas instituies. O crescimento hoje experimentado pelo Brasil possibilita uma maior compreenso entre os cidados brasileiros sobre como funciona, ou deve funcionar, nosso pas e, portanto, gera maior exigncia em relao aos servios prestados populao. Em consequncia disso, o Estado deve aprimorar a qualidade dos servios atravs da modernizao, da transparncia e da eficcia de seus sistemas. Um exemplo desse aprimoramento a criao do Conselho Nacional de Justia (CNJ), um sistema integrado de gesto dos tribunais que permite maior transparncia ao Judicirio brasileiro. Para que tais iniciativas sejam eficazes, so necessrias aes coordenadas de planejamento, criao de metas e acompanhamento e monitoramento de resultados. Com essa frmula pode-se avaliar, historicamente, onde preciso inovar e em quem podemos nos espelhar para conseguir mais celeridade nos processos e nos resultados das decises.
Brazil is going through a period of economic expansion and this fact, combined with the globalization process, creates important opportunities for international recognition. Gradually we have established ourselves as one of the major world powers and become a reference on issues involving economic stability, development and innovation. This recognition favors the exchange of experiences with other cultures and systems that have the common goal of helping to legitimate growth and development for their countries and their institutions. The growth we experience today enables a greater understanding among Brazilian citizens as to how our country works or should work and, therefore, generates higher levels of demand in relation to services provided for the population. Consequently, the State must improve the quality of its services through modernization, transparency and effectiveness of its systems. An example of this improvement is the setting up of the National Council of Justice (CNJ), an integrated court management system that enables greater transparency for Brazilian judicial system. For initiatives of the kind to be effective, coordinated action is needed for planning, setting targets, monitoring, and tracking results. This formula enables us to evaluate, historically, where we must innovate and what model we can follow to get faster processes and outcomes from decisions.
A Fundao Getulio Vargas, reconhecida por sua contribuio ao desenvolvimento socioeconmico do pas, constantemente promove o intercmbio entre instituies respeitadas internacionalmente para discutir temas de relevncia global. Foi este o sentido do encontro, no Rio de Janeiro e em Braslia, entre a Escola Brasileira de Administrao Pblica e de Empresas da Fundao Getulio Vargas (EBAPE/FGV) e a FGV Projetos, o Instituto Brasiliense de Direito Pblico (IDP), a Escola Superior de Administrao Pblica de Nordrhein-Westfalen (FHV), o Tribunal Constitucional e o Tribunal Administrativo Superior do Estado de Nordrhein-Westfalen, com o objetivo de discutir a importncia de uma administrao pblica e de uma gesto do Poder Judicirio modernas e eficientes.
Recognized for its contribution to Brazils socioeconomic development, FGV Foundation is constantly fostering exchange programs between internationally recognized institutions to discuss issues of global relevance. This was the case of the meeting between the Brazilian School of Public and Business Administration of FGV Foundation (EBAPE/ FGV) and FGV Projetos, Brasilias Institute of Public Law (IDP), the University of Public Administration of NordrheinWestfalen (FHV) and the Constitutional and Superior Administrative Court of Nordrhein-Westfalen, held in Rio de Janeiro and Braslia with the purpose of discussing the importance of a modern and efficient public administration and management of the Judiciary.
CARLOS IVAN SIMONSEN LEAL PRESIDENTE DA FUNDAO GETULIO VARGAS PRESIDENT OF FGV FOUNDATION
Historicamente, a atuao do Estado na economia avana como resultado das crescentes demandas por bem-estar social, pelo aumento dos investimentos pblicos como condio para o desenvolvimento do setor privado, ou ainda devido ampliao das funes administrativas e de segurana. A funo organizadora da administrao pblica e da gesto do Poder Judicirio alinha-se ao funcionamento de normas que garantam o desenvolvimento da nao. Da mesma maneira que a evoluo dos indivduos, da sociedade e da espcie consequncia do tempo e de nossas aes conscientes ou inconscientes , boas prticas de gesto devem ser adequadas e modernizadas para garantir o fortalecimento e assegurar o desenvolvimento das instituies. Nesse contexto, a estabilidade econmica brasileira conquistada nos ltimos anos , tambm, resultado da aplicao de prticas e medidas inovadoras, criadas por entidades pblicas e privadas que tm o objetivo comum de ampliar o crescimento socioeconmico do pas de forma sustentvel. A Fundao Getulio Vargas (FGV) tem como um de seus pilares contribuir de forma eficiente para a inovao e a modernizao das instituies brasileiras, pautada por fortes padres de excelncia e de qualidade. Ao mesmo tempo em que excelncia denota impecabilidade nos padres de qualidade, tambm eleva o grau das expectativas. Assim preciso considerar que a busca da perfeio passa, necessariamente, tanto por acertos quanto por erros.
Historically, the states burgeoning intervention in the economy has been a result of the rising demand for social welfare, higher levels of public investment as a condition for the private sectors development, or even the extent of its administrative and security functions. The organizing role of public administration and management of the judiciary align with functioning standards that ensure a nations development. In the same way that the evolution of individuals, societies or species is a consequence of the passage of time and our own conscious or unconscious actions, good management practices too have to be adapted and modernized to ensure that institutions develop and consolidate. In this context, the economic stability that Brazil has attained in recent years is also the outcome of applying innovative practices and measures devised by public and private entities whose shared aspiration is to boost the nations socioeconomic growth on a sustainable basis. One of the pillars for FGV Foundation is to make an effective contribution to the innovation and modernization of Brazils institutions, guided by high standards of excellence and quality. While excellence denotes impeccable quality standards, it also raises the bar for expectations. Thus, it is relevant to consider that the pursuit of perfection will necessarily involve both hits and misses.
No toa a FGV uma instituio reconhecida por sua contribuio ao pas, pois entende que nenhuma evoluo feita a curto prazo. Sua misso promover o desenvolvimento econmico e social do Brasil e, assim, continuar construindo uma trajetria de destaque no cenrio histrico nacional, sendo responsvel pela elaborao dos principais indicadores econmicos do pas, e contribuir para o aprimoramento de polticas pblicas por meio da boa gesto. A discusso sobre administrao pblica e gesto do Poder Judicirio no contexto brasileiro e, neste caso, tambm no contexto alemo, de suma importncia, pois somente a partir do dilogo, do respeito s divergncias e da colaborao que honramos a democracia.
Not by accident, FGV Foundation is an institution recognized for its longstanding contribution to the nation, since it believes real progress is not achieved in the short term. Its mission is to foster Brazils economic and social development and thus continue building toward an outstanding future for the nation in historical terms. FGV Foundation has devised and compiled Brazils key economic indicators; it has also helped to improve public policies through good management. The discussion on public administration and management of the judiciary in the Brazilian context, and in the German context too in this case, is of paramount importance, since it is only through dialogue, respect for differences and collaboration that we honor and uphold democracy.
GILMAR MENDES MINISTRO DO SUPREMO TRIBUNAL FEDERAL MINISTER OF THE SUPREME FEDERAL COURT
A incontestvel liderana da Alemanha nestes tempos de crise em que, dia aps dia, mais ressaltam a fragilidade e o desconcerto das maiores economias do planeta no h de surpreender quem conhece a firmeza de um povo a cuja obstinada disciplina pode-se atribuir o soerguimento triunfal de uma nao completamente destruda pela mais devastadora das guerras mundiais. A envergadura poltico-econmica alem apoia-se, entre outros fatores, numa estrutura administrativa enxuta mas eficiente, resultado de profcua reforma administrativa realizada nos anos 1990. Por essa poca, o Brasil primava por consolidar o regime democrtico com suporte na Constituio Federal de 1988, diploma cujo vis de proteo aos direitos fundamentais sociais acentuou consideravelmente o papel e o tamanho do Estado brasileiro. A um s tempo, o aprendizado da democracia tem revelado claramente o quanto ainda precisamos caminhar em busca da reduo das desigualdades, de modo a nos tornarmos um pas socialmente mais justo, economicamente mais forte, politicamente mais representativo e respeitado o que reconduz questo central da eficincia administrativa na gesto dos recursos disponveis. Da a importncia do intercmbio de conhecimentos com naes como a Alemanha, que, mesmo j havendo atingido os nveis de modernizao produtiva, ainda persistem na meta de alcanar o grau de excelncia, a exigir constante reconfigurao, nica forma de acompanhar os saltos dirios da evoluo tecnolgica. Por outro lado, a significativa melhora nos nossos padres de gesto pblica, sobretudo no intuito de atender aos inescusveis ditames da ordem constitucional vigente, convalida o contributo da experincia brasileira no mister de encontrar solues viveis para os complexos desafios hodiernos. A Reforma do Judicirio, no bojo da qual foi criado o Conselho Nacional de Justia (CNJ), de incontestveis resultados, exemplo de xito dos mais expressivos.
Germanys incontestable leadership in this time of crisis - in which each passing day highlights the lack of coordination and fragility of the planets biggest economies - comes as no surprise to those of us aware of the strength of a people whose obstinate discipline may be attributed to the triumphal resurgence of a nation completely destroyed by the most devastating of world wars. Among other factors, Germanys political and economic framework is based on a lean but efficient administrative structure, as a result of its fruitful administrative reform of the 1990s. At that time, Brazil stood out for its consolidation of democracy based on the 1988 Constitution, with its bias toward protecting fundamental social rights that considerably accentuated the role and size of the State. At the same time, the learning experience of democracy has clearly shown us how far we still have to go to reduce inequalities, in order to become a socially fairer, economically stronger and politically more representative and respected country - which leads back to the central question of administrative efficiency in the management of available resources. Hence the importance of sharing knowledge with nations such as Germany, which despite having already reached high levels of production modernization, continues to strive for excellence, requiring constant reconfiguration as the only means of keeping abreast of technology which evolves and strides forward on a daily basis. On the other hand, significant improvement in our standards of public management, in particular those serving the inevitable dictates of the constitutional order now in effect, validate the Brazilian experiences ability to contribute to the task of finding viable solutions to todays complex challenges. Judicial reform, in the course of which the National Justice Council was set up and has had undeniable results, is one of the most expressive examples of such success.
Foram essas as bases que, de modo geral, nortearam a realizao do seminrio Administrao Pblica e Gesto do Poder Judicirio, promovido pelo Instituto Brasileiro de Direito Pblico (IDP), pela Escola Brasileira de Administrao Pblica e de Empresas da Fundao Getulio Vargas (EBAPE/ FGV) e pela FGV Projetos, com a participao da Faculdade de Administrao Pblica de Nordrhein-Westfalen (FHV), e da Corte Superior de Administrao e Constitucional de Nordrhein-Westfalen, na Alemanha. To proveitoso o evento, tamanha a percucincia e a profundidade das palestras que houvemos por bem perpetu-las na publicao a qual me coube a honra de apresentar. Os palestrantes brasileiros, entre os quais me incluo, tivemos a satisfao de debater e confraternar com mestres renomados como Michael Bertrams, Presidente da Corte Constitucional e do Tribunal Administrativo Superior do Estado de Nordrhein-Westfalen; Ludger Schrapper, Presidente da Universidade de Administrao Pblica do Estado de Nordrhein-Westfalen, alm dos professores Rainer Frey, da Universidade de Mnster, e Katrin Mltgen, professora de Cincias Polticas e Sociologia na Universidade de Administrao Pblica do Estado de Nordhein-Westfalen. Convertidas em textos acessveis, at porque magistralmente traduzidas tanto para o portugus quanto para o ingls, as conferncias, grosso modo, sinalizam que o investimento em conhecimento/capacitao (sempre ele!) parece ser o fio condutor, a vertente decisiva, quando se trata de qualidade em gesto pblica, como sugere Schrapper, ao discorrer sobre a Faculdade de Servio Pblico. Bem interessante tambm se afigura a viso de Frey sobre o caminho de desenvolvimento das administraes: de uma administrao de ordem e de soberania para uma administrao prestadora de servios, que progressivamente assume a gesto de todas as reas sociais, a fim de atender a objetivos que compreendem a desregulamentao, privatizao e ateno ao consumidor/cidado com o governo investindo, para tanto, na promoo dos potenciais de autorregulao da sociedade. Cidadania , igualmente, o cerne da proposta de Mltgen para o geren-
Such were the general guidelines for the seminar on Public Administration and Management of the Judiciary held by the Brazilian Institute of Public Law (IDP) and the Brazilian School of Public and Business Administration at Fundao Getulio Vargas (EBAPE/ FGV). The event was very fruitful with interventions so acute and profound that we decided to perpetuate them in this publication, which I have the honor of introducing. The Brazilian speakers, myself included, had the pleasure of debating and sharing ideas with renowned masters such as Michael Bertrams, President of the Constitutional Court and State Administrative Court of North Rhine-Westphalia; Ludger Schrapper, President of the University of Public Administration of the State of North Rhine-Westphalia, and professors Rainer Frey of the University of Mnster and Katrin Mltgen, the professor of Political Science and Sociology at the University of Public Administration of the State of North Rhine-Westphalia. Having been converted into accessible texts, masterfully translated into both Portuguese and English, their interventions in general pointed out that investment in knowledge/training (again!) seems to be the guiding thread, or the decisive aspect in terms of ensuring quality for public administration, as Schrapper suggested in his comments on the School of Public Service. Another very useful aspect was Freys view of the path toward development for administrations: from administration for order and sovereignty to administration for providing services that gradually takes over management of all social areas in order to meet goals encompassing deregulation, privatization and consumer/citizen care - with government investing to foster the potential of societys self-regulation. Citizenship is also at the core of Mltgens proposal for democratic management of public administration, which the professor illustrated with the example of Colognes participative process. Bertrams then poses
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ciamento democrtico da gesto pblica, ilustrada pela professora com o exemplo do processo participativo de Colnia. Bertrams, por sua vez, traz a lume a reforma pela qual passou a Terceira Potncia para garantir a qualidade e a eficincia do trabalho judicirio germnico. L tambm a mediao (sob o lema mediar em vez de justiar) faz parte dos projetos de modernizao. O leitor ainda presenteado pelo mestre com precioso bnus: na palestra A jurisdio da Constituio Federal dentro da estrutura alem expe, com riqueza de detalhes, os meandros do sistema constitucional alemo. Enfim, profissionais e cultores do Direito, acadmicos e diletantes havero de se deleitar com publicao cujo contedo de altssima qualidade oferece-se em bela e cuidadosa edio, tudo de modo a conjugar, ao indizvel prazer da leitura, o verniz cada vez mais indispensvel do conhecimento.
the reform that the Third Power had undergone to ensure the quality and efficiency of Germanys judicial practices. Mediation is also part of the modernization projects (under the slogan mediate rather than judge). The professor also gives readers valuable bonuses: the lecture The Federal Constitutions jurisdiction within the German framework shows the intricacies of the German constitutional system with a wealth of detail. Consequently, legal professionals and enthusiasts, academics and dilettantes will delight in a publication, whose content - of the highest quality - has been beautifully and meticulously produced to combine the increasingly indispensable sheen of knowledge with the ineffable pleasure of reading.
Enjoy! Boa leitura a todos!
ARTIGOS
ARTICLES
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A EvOLUO dA dEMOCRACIA ATRAvS dA AdMI NISTRAO PbLICA THE EvOLUTION OF dEMOCRACY THROUGH PUbLIC AdMINISTRATION
CARLOS IVAN SIMONSEN LEAL PRESIDENTE DA FUNDAO GETULIO VARGAS PRESIDENT OF FGV FOUNDATION
Desde a promulgao da Constituio de 1988, o Brasil vem construindo sua democracia, que uma pea viva e deve ser passada de uma gerao para outra com aperfeioamentos e adaptaes. E, como se diz tambm no Direito, nada disso se faz sem luta. O Direito luta, a democracia luta. A Fundao Getulio Vargas tem a preocupao de que essa luta seja feita dentro de certos parmetros, de um arcabouo de institucionalizao, que permita um progresso positivo para a nao. A evoluo da administrao pblica no Brasil fundamental para isso e deve incluir no apenas uma discusso sobre como ela deve ser e o que deve fazer, mas tambm a sua regulao. Como se costuma dizer, o diabo est sempre nos detalhes. No Brasil, assim como na Alemanha, as questes de regulao, antes mesmo at das questes de regulamentao, so importantes. Quais so os mecanismos de incentivo e de punio? Quais so as linhas condutoras da administrao pblica? Enquanto os objetivos lato sensu que devem ser perseguidos, como, por exemplo, o desenvolvimento socioeconmico do pas, j esto bem claros, ainda existem inmeras discusses. E isso faz parte da prpria democracia.
Since the promulgation of the Constitution of 1988, Brazil has been constructing its democracy, which is a living being and should be passed on from one generation to another with improvements and adaptations. And, as it is said in the domain of Law, none of this is done without a fight. Law is a fight, democracy is a fight. FGV Foundation is concerned that this fight is held within certain parameters that allow a positive development for the nation. The evolution of public administration in Brazil is fundamental for it and should include, not only a discussion about how it should be and what to do, but also its regulation. As it is said, the devil is always in the details. In Brazil, as well as in Germany, the issues of regulation, even more than the issues of governance, are terribly important. Which are the mechanisms of incentive and punishment? Which are the guidelines of public administration? While the objectives to be pursued, for example, the social and economic development of the country are already very clear, there are still many discussions to be held. And this is part of democracy itself. Public administration, therefore, should be an instru-
A administrao pblica, portanto, deve ser um instrumento capaz de atender aos ditames polticos de cada instante. Porque, afinal, h escolhas que so meramente polticas, onde a racionalidade poltica. Mas h outras cuja implementao deve ser feita em conformidade com a razo. Esses dois elementos vivem em permanente tenso.
ment capable of attending the political dictates of each moment. Because, in the end, there are choices that are purely political, where rationality is political. But there are other choices whose implementation should be made in accordance with reason. These elements are in constant tension. Exactly for this reason,
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Por isso, uma administrao pblica consolidada uma garantia da democracia. , no entanto, uma condio necessria, porm no suficiente. sim um fator imprescindvel e, aqui no Brasil, est em processo de evoluo. O aperfeioamento da administrao pblica depende em parte dela prpria. o Poder Judicirio que vai determinar como a regulao se expressar atravs das regulamentaes feitas. A interpretao e a dirimio de dvidas so extremamente importantes e sero cada vez mais nos prximos 15 anos. A FGV acredita que nesse perodo que ser posta prova a passagem daquela primeira fase da democracia, at um pouco nave, onde se acreditava que apenas o voto era suficiente, para uma democracia mais profunda, com discusses mais detalhadas sobre, por exemplo, o processo oramentrio, a aplicao das leis e as obrigaes e direitos do funcionalismo pblico, criando um melhor equilbrio social.
a consolidated public administration is a guarantee of democracy. It is a necessary condition, but it is not sufficient. Certainly it is a fundamental factor, and here in Brazil, it is in a process of evolution. The improvement of public administration depends partly on itself. It is the Judiciary that will determine how the regulation will be expressed through applied rules. The interpretation and clarification of doubts are extremely important and will be more so within the next 15 years. FGV Foundation believes that in this period will be tested the path from that first phase of democracy, even a little nave, when it was believed that voting was enough, to a more profound democracy, with more detailed discussions on, for example, the budget process, the application of laws, the duties and rights of civil servants, creating a better social balance.
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A IMPORTNCIA dO CONSTANTE APRIMORAMENTO dO PERFIL dA AdMINISTRAO PbLICA E dO POdER JUdICIRIO bRASILEIRO THE IMPORTANCE OF THE CONSTANT IMPROvEMENT OF bRAZILIAN PUbLIC AdMINISTRATION ANd JUdICIAL SYSTEM
GILMAR MENDES MINISTRO DO SUPREMO TRIBUNAL FEDERAL MINISTER OF THE SUPREME FEDERAL COURT
O Brasil possui propores continentais, com oito milhes de quilmetros quadrados, 27 estados ou unidades federadas e mais de cinco mil municpios. Isso requer uma articulao e uma coordenao de servios pblicos que nos impem uma preparao adequada. No Judicirio so quase 20 mil juzes e 91 tribunais que tambm exigem uma delicada ateno a aspectos ligados prpria administrao do servio jurisdicional. Todas essas questes levantam a necessidade de trocarmos impresses e aprendermos com as experincias desenvolvidas em outros pases. No caso, a Alemanha. Diferentemente do que prev o texto constitucional alemo, a Carta Magna brasileira impe uma srie de exigncias administrao pblica a partir da generosidade dos chamados direitos sociais. Exige-se da administrao pblica uma qualidade mpar. Em diversas reas, discute-se sempre o direito educao, sade, assistncia e prestao jurisdicional como direitos fundamentais. Tudo isso est ligado ao Direito Constitucional, Administrativo, e tambm administrao pblica. Da a importncia dessa discusso. fundamental reconhecer que o Brasil passa por uma fase especial desde a promulgao da Constituio de 1988. J so quase 24 anos de democracia, o que no um fato irrelevante se considerarmos que este o mais longo perodo de normalidade institucional na Repblica. Mas ainda preciso consolidar e aprofundar essa democracia, criando um modelo de maior igualdade. Para isso, a melhoria contnua dos servios pblicos altamente relevante.
Brazil has continental proportions, with eight million square kilometers, 27 states and more than five thousand municipalities. This requires an articulation and coordination of public services that impose adequate preparation. In the Judiciary there are almost 20 thousand judges and 91 courts that also require a delicate attention to aspects connected to the management of the judicial system. All of these issues raise the need to exchange ideas and learn from the experiences of other countries. In this case, Germany. Unlike what the German Constitution provides, the Brazilian Constitution imposes a series of demands on public administration due to the generosity of so-called social rights. In many areas, the rights to education, health, assistance and adjudication are constantly pointed as fundamental rights. All this is linked to constitutional and administrative law as well as to public administration. Thus the importance of this discussion. It is important to recognize that Brazil is going through a special phase since the promulgation of the Constitution of 1988. It has been almost 24 years of democracy and this is not an irrelevant fact considering that this is the longest span of institutional normality in the Republic. But it is still necessary to consolidate and develop this democracy, creating a model of greater equality. For this, the continuous improvement of public services is highly relevant.
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Em relao administrao judiciria, o Brasil iniciou, a partir da Constituio de 1988, um modelo que enfatizou fortemente a autonomia do Judicirio. Mas com cerca de dez anos de prtica verificou-se que talvez houvesse problemas que precisavam ser corrigidos. A ideia da autonomia administrativa e financeira do Judicirio foi fortemente enfatizada e garantida no texto constitucional. Porm, no raras vezes detectaram-se alguns desvios no exerccio dessa autonomia. E assim, j em 1994, passados pouco mais de cinco anos da promulgao da Constituio de 1988, recomendavam-se revises e at a criao de um rgo de controle para essas reas. Essa proposta se consolidou apenas com a Emenda Constitucional no 45, de 2004. No ano seguinte foi instalado o Conselho Nacional de Justia (CNJ), que, desde ento, vem exercendo suas atividades. Mas no so poucos os membros do prprio Poder Judicirio que o criticam por acreditar que ele interfere, ainda que em atividades administrativas ou financeiras, na autonomia tradicional do Judicirio. O CNJ composto por 15 membros com mandato de dois anos suscetvel de uma renovao. Entre seus integrantes h indivduos dos tribunais e do Ministrio Pblico (MP), representantes da sociedade escolhidos pelo Congresso Nacional e indicados pela Ordem dos Advogados do Brasil (OAB). Seu presidente o presidente do Supremo Tribunal Federal (STF), portanto, a mais alta autoridade do Judicirio. O Conselho trata apenas de questes administrativas e financeiras e busca, tanto quanto possvel, harmonizar as aes do Judicirio e a boa alocao dos recursos. Subsidiariamente, tambm afere a Justia na aplicao de medidas disciplinares administrativas por parte dos tribunais em relao aos juzes.
Regarding the management of the judicial system, with the Constitution of 1988 Brazil started a model that strongly emphasized the autonomy of the Judiciary. However, after ten years of practice, it was noted that perhaps there were problems that needed to be corrected. The idea of administrative and financial autonomy of the Judiciary was strongly emphasized and guaranteed in the Constitution. However, some deviations have been often detected in the exercise of this autonomy. So, in 1994, little more than five years after the promulgation of the Constitution of 1988, reviews and even the creation of a control agency were recommended. This proposal was consolidated only with the 45th Constitutional Amendment of 2004. The following year, was installed the National Council of Justice (CNJ), which since then has been performing its activities. But there are members of the Judiciary that criticize the Council for believing that it interferes, only if in administrative or financial activities, in the traditional autonomy of the Judiciary. The CNJ is composed of 15 members elected for a period of two years susceptible to a renewal. Among its members there are people of the courts, public prosecutors, society representatives chosen by Congress and appointed by the Bar Association of Brazil (OAB). Its president is the president of the Supreme Court, therefore, the highest authority of the Judiciary. The Council only deals with financial and administrative issues and seeks, as much as possible, to harmonize the actions of the Judiciary and the proper allocation of resources. Subsidiarily, it can also check the application by the courts of administrative disciplinary measures related to judges. Since 2005, the CNJ has been devoted to making an
Desde 2005, o CNJ tem-se dedicado a fazer uma avaliao do trabalho exercido pelo Judicirio. E para que se compreenda o significado da atividade judicial no Brasil, vlido ressaltar que o pas tem um grande patrimnio institucional que a crena no Poder Judicirio. Havendo conflito, as pessoas vo Justia.
evaluation of the work done by the Judiciary. And in order to understand the significance of judicial activity in Brazil, it is worth noting that the country has a large institutional legacy that is the belief in the Judiciary. If there is conflict, people go to court. But we also lack in other institutions besides the Judi-
Mas tambm nos faltam outras instituies, alm do Judicirio, aptas a dirimir controvrsias. Por isso, h uma
ciary, able to resolve disputes. Therefore, there is a huge mass of processes. In 2008, for example, there were near
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massa enorme de processos. Em 2008, por exemplo, tramitaram pela Justia brasileira aproximadamente 70 milhes de processos. Destes, cerca de 25 milhes foram solvidos de alguma maneira. Isso significa que 2009 j comeou com um nmero elevadssimo de processos. E estes dados revelam o quo dependentes somos da estrutura do Judicirio. Como consequncia desses entravamentos, foram criados os Juizados Especiais Federais para tratar das chamadas pequenas questes, aquelas com limite de valor at 60 salrios mnimos. Naquela poca, a expectativa era receber algo em torno de 180-200 mil processos nos primeiros anos. Seriam os processos ligados assistncia social, previdncia social, s pequenas penses e aposentadorias. Qual no foi a surpresa quando, passados alguns anos, no estgio atual, constatou-se que tramitam nesses pequenos juizados cerca de 2,5 milhes de processos. Isso demonstra que, muito provavelmente, esta maior repartio de previdncia social do Brasil e que h um problema estrutural srio que precisa ser resolvido. Talvez a demora da administrao em fazer as correes leve as pessoas diretamente ao Poder Judicirio. H outras questes importantes e que dizem respeito administrao pblica e ao Direito Financeiro. So cerca de 30 milhes de processos ligados ao executivo fiscal. No entanto, o xito na cobrana muito reduzido. Em alguns estados, no chega nem a 1%. Portanto, ajuza-se a ao, mas ela no produz resultado. Ou, ela ajuizada, exatamente, porque no produzir resultado. Muito provavelmente, se o pas lograsse melhora na exceo fiscal em um percentual relativamente elevado, algo em torno de 10%, ns experimentaramos uma espcie de revoluo fiscal. Este tema objeto de discusso no CNJ, buscando-se resultados especficos e at formas alternativas de cobrana que no o modelo puramente judicial. Portanto, a reforma do Judicirio, em muitos casos, pode envolver questes fora do mbito exclusivamente judicial. H ainda mais uma experincia interessante verificada no CNJ, que diz respeito ao sistema prisional. No Brasil, j h algum tempo, existe uma reclamao muito intensa quanto s ms condies dos presdios. Ento, examinou-se esse tema e realizou-se o mutiro carcerrio que, ini-
70 million cases being handled by the Brazilian Justice System. Of these, about 25 million have been solved in some way. It means that 2009 has started with a huge number of processes. And these data show how dependent we are on the structure of the Judiciary. As a consequence, Special Courts were created to deal with the so-called small issues, those with a limit value of 60 minimum wages. At the time, the expectation was to receive around 180-200 thousand cases in the first few years lawsuits linked to social assistance, social security, small pensions and retirement. What a surprise when, some years after, it was found that those courts had about 2.5 million cases. This shows that, in all likelihood, this is the greater distribution of social security in Brazil, and there is a serious structural problem that needs to be solved. Perhaps the delay in the administration in making the corrections leads people directly to the Judiciary. There are other important matters concerning public administration and financial law. There are about 30 million cases associated with the tax executive. However, successful recovery is very low. In some states, it does not add up to 1%. So, the lawsuit is filed but it does not produce results. Or, it is filed because it does not produce results. Most likely, if the country improved in tax exemption in a relatively high percentage, something around 10%, we would experience a kind of tax revolution. This theme is a subject of discussion in the National Council of Justice, seeking specific results and even alternative forms of billing other than the purely judicial model. So, judicial reform in many cases may involve issues outside the judicial area. There is one more interesting experience found by the CNJ regarding the prison system. In Brazil, for some time, there has been a very strong complaint about the poor conditions of prisons. The issue received attention and a joint effort was carried out in the prisons, initially aimed to examine the situation of the so-called definitive prisoners, those who were serving the determined sentence. Indeed, we observed very complicated situations. But fortunately, some states have progressed in solving this problem by creating of the Virtual Court of Criminal Enforcement. In other words, the electronic control system.
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cialmente, visava examinar a situao do chamado preso definitivo, aquele que j cumpria pena a partir de condenao transitada em julgado. Realmente, foram constatadas situaes muito complicadas, mas felizmente alguns estados j avanavam na soluo desse problema com a criao da Vara de Execuo Penal Virtual. Ou seja, o controle eletrnico do sistema. Descobriu-se tambm uma grave falha no regime de prises provisrias. Encontrou-se algum preso no Esprito Santo havia mais de 11 anos sem sentena. E depois, uma pessoa presa havia 14 anos sem sentena no Cear. Logo, um quadro de horror. O CNJ, ento, ao procurar sanar essa falha, assumiu a culpa do Judicirio nessa situao e fixou prazos para que os juzes aferissem o tempo de priso provisria. E essa ao mostrou que o Conselho tem uma boa capacidade de interferir nas atividades administrativas do Judicirio e ir alm disso. Ele mostrou-se capaz de verticalizar as aes do Poder Judicirio. De chegar, portanto, ponta e estabelecer um dilogo com autoridades incumbidas por outros setores. Desse programa, nasceram outros que no eram, inicialmente, da esfera judicial de responsabilidade. E por qu? Porque nessa reviso de penas, e tambm na reviso das prises provisrias, 20 mil presos foram libertados no Brasil. O Judicirio passou a ter a obrigao de responder por essas pessoas, que poderiam cometer outros crimes nas ruas. E todos sabem que um dos graves problemas da segurana pblica a questo da reincidncia. A soluo foi lanar o projeto Comear de Novo, que abrangeu toda a sociedade e as trs esferas governamentais. O prprio STF se envolveu e empregou egressos do sistema prisional para dar exemplo e mostrar que preciso lidar com esse tema a fundo. Hoje h uma boa reao do governo, que aderiu ao programa do CNJ e busca agora evitar a configurao do quadro dos presos em delegacia. O Brasil tem quase cem mil presos fora dos presdios, todos acumulados nas chamadas prises provisrias. Depois desse levantamento, o prprio governo se disps a encaminhar ao Congresso Nacional um aumento do oramento para a construo de presdios especiais, sanando esse problema. Este mais um bom exemplo da ao positiva do CNJ.
A serious deficiency in the system of temporary prison was also found. There was a prisoner held in the state of Esprito Santo for more than 11 years without a sentence and a person imprisoned for 14 years without a sentence in the state of Cear. A picture of horror. The National Council of Justice, in seeking to remedy this fault, took on the blame and set deadlines for judges to assess the time for provisional arrest. This action showed that the Council has a good capacity to interfere in Judiciary administrative activities and even go farther. It showed itself able to upright the actions of the Judiciary and to establish a dialogue with the authorities responsible for other sectors. From this program other programs were born that were not, initially, the responsibility of the judicial sphere. And why? Because from this review of penalties and also from the review of provisional arrests, 20 thousand prisoners were freed in Brazil. The Judiciary became responsible for those people who might commit other crimes while on the streets. And everyone knows that one of the most serious problems of public safety is recidivism. The solution was to launch the project New Beginnings, which covered the whole society and the three spheres of government. Even the Supreme Court got involved and hired former convicts to set an example and show that it is necessary to deal with this issue in depth. Today there is a good reaction from the government, that joined the CNJ program and is now seeking to avoid the configuration of the police station prisoner. Brazil has nearly one hundred thousand prisoners out of prisons, all rolled up in the so-called provisional arrest. After this survey, the government itself is willing to submit to Congress a budget increase for the construction of special prisons, solving this problem. This is another good example of the positive action of the National Council of Justice. A professor in Rio de Janeiro, a scholar of human rights, who was in the administration of president Fernando Henrique Cardoso, at the Ministry of Justice, mentioned the attempts to convince the state secretaries of public safety and justice to improve conditions in prisons. She said that despite all efforts, they did not accept these
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Uma professora do Rio de Janeiro estudiosa da questo dos direitos humanos, que esteve, no governo de Fernando Henrique Cardoso, no Ministrio da Justia, contava sobre suas tentativas de convencer os secretrios de estado de Segurana Pblica e de Justia a melhorar as condies dos presdios. Ela dizia que a despeito de todos os esforos eles no acolhiam esses pleitos, porque acreditavam que se tratava de uma interveno indevida na autonomia de cada estado membro. Diante da ao do CNJ, os secretrios no dispem mais dessa liberdade, porque o juiz da execuo penal, o rgo judicirio, passou a dialogar diretamente com a autoridade judicial e, apontando os equvocos eventualmente verificados, diz que, se no houver uma mudana, o presdio ser lacrado por ordem judicial. Isso levou a uma mudana no quadro poltico-administrativo. Foram muitas as medidas tomadas pelo CNJ nesse perodo. A adoo de uma administrao de perfil gerencial, que contou com o suporte da Fundao Getulio Vargas (FGV), por exemplo, uma delas. A adoo de metas para julgamentos em relao a cada tribunal e a divulgao dos resultados anuais so outras duas. Em suma, so iniciativas que vm mudando o perfil do Judicirio brasileiro e, de alguma forma, transformando tambm o quadro que existe em relao a outras atividades conexas ou afins. Recentemente foi feita uma parceria entre o CNJ, o Conselho Nacional do MP, que tm formao idntica, e o Ministrio da Justia para algumas estratgias. Compartilhar essa vivncia e mostrar seus aspectos positivos um prazer e uma honra.
requests because they believed it was an undue interference in the autonomy of each state. In the face of the action of the CNJ, secretaries no longer have this freedom, because the judge of penal execution, the judicial body, began to talk directly with the court and, pointing the mistakes eventually checked, says that if there is not a change, the prison will be sealed by court order. This led to a change in the political-administrative framework. Many steps were taken by the National Council of Justice in this period. The adoption of an administration with managerial profile, with the support of FGV, for example, is one of them. The adoption of targets for each trial court and the publication of annual results are other two. In short, these are initiatives that are changing the profile of the Brazilian Judiciary and, somehow, are also changing the framework of other related or similar activities. Recently a partnership was established between the CNJ, the Public Prosecutors Department who have equal qualifications and the Ministry of Justice for some common strategies. To share this experience and to show its positive aspects is a pleasure and an honour.
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O dESAFIO dA CRIAO dE UM MOdELO dE GESTO EFICIENTE THE CHALLENGE IN CREATING AN EFFICIENT MANAGEMENT MOdEL
FLAVIO VASCONCELLOS DIRETOR DA ESCOLA BRASILEIRA DE ADMINISTRAO PBLICA E DE EMPRESAS DA FGV - EBAPE/FGV DIRECTOR OF THE BRAZILIAN SCHOOL OF PUBLIC AND BUSINESS ADMINISTRATION OF FGV FOUNDATION - EBAPE/FGV
Recapitulando o ocorrido na Europa entre os sculos XVIII e XIX, constata-se o nascimento e a consolidao da administrao pblica moderna no continente europeu, especialmente na Alemanha e na Frana. Naquele momento, estes novos modelos trouxeram inovaes extremamente importantes e estavam ligados ao que Weber chamou de emergncia do processo de racionalizao da sociedade e de instaurao da administrao pblico-burocrtica. Com base neste contexto terico, as burocracias se consolidam a partir do sculo XIX, principalmente, como a expresso mais acabada deste fenmeno de racionalizao. Aqui o termo burocrtico tem um sentido mais tcnico, sociolgico. Weber o usava para definir um tipo ideal de organizao que visava maximizar a eficincia operacional e era fundamentado no exerccio do poder da autoridade racional legal. Alguns modelos burocrticos, como a Igreja Catlica, por exemplo, acabaram indo muito alm dos limites do sculo XIX. O mais interessante desta sntese feita por Weber a cristalizao de alguns dos elementos mais importantes da burocracia. Em primeiro lugar, a burocracia nasce de uma separao entre as esferas pessoal e organizacional. Ou seja, trata-se de uma organizao na qual o detentor do cargo tem um patrimnio pessoal separado do patrimnio da organizao. Esta, inclusive, talvez seja a principal diferena em relao estrutura feudal, onde um ttulo de nobreza acompanha uma srie de obrigaes e direitos patrimoniais sobre toda uma determinada regio. J o cargo definido na burocracia uma posio formal, na qual o privado e o pblico ou o organizacional esto bem definidos e separados.
Looking back to what happened in Europe between the 18th and 19th centuries, we observe the birth and consolidation of modern public administration, especially in Germany and France. At that time, these new models brought extremely important innovations and were connected to what Weber called the emergency of the process of rationalization of society and the establishment of bureaucratic public administration. According to this theoretical context, bureaucracies were consolidated from the 19th century on, as the most complete expression of this phenomenon of rationalization. Here, the term bureaucracy has a more technical, sociological sense. Weber used to define it as an ideal type of organization that aimed to maximize operational efficiency and was based on the exercise of legal rational authority. Some bureaucratic models, like the one adopted by the Catholic Church, for example, ended by going far beyond the limits of the 19th century. The most interesting aspect of this synthesis made by Weber is the crystallization of some of the most important elements of bureaucracy. First of all, bureaucracy is born from the separation between personal and organizational levels. In other words, it is an organization where the one who helds a position has a personal patrimony separated from that of the organization. This is probably is the main difference in relation to the feudal structure, where a title of nobility follows a series of obligations and property rights over an entire region. Instead, the position defined in the bureaucracy is a formal position where the private and the public, or the organizational, are well established and separated.
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Alm disso, a burocracia uma estrutura formal com cargos que tm direitos e deveres estabelecidos. Estes cargos so, normalmente, providos atravs de processos controlados nos quais o conhecimento o elemento fundamental. As pessoas so selecionadas, portanto, porque sabem alguma coisa e no porque so filhos de algum ou tm determinado capital social. Este critrio do conhecimento no preenchimento dos postos indispensvel na definio da burocracia. Para fechar esta descrio sumarizada do modelo weberiano, interessante ressaltar que as comunicaes tambm so essencialmente formais, escritas e registradas. E as decises, muito caractersticas, so impessoais e fundamentadas na racionalidade e no nas relaes pessoais. De volta ao presente, muito curioso perceber que se pensarmos em grande parte do que se fala hoje sobre a reforma do Poder Judicirio no Brasil, o ideal seria chegarmos, justamente, no modelo burocrtico. O melhor seria implementar um modelo eficiente, impessoal, que isole aspectos de nepotismo e separe a vida pessoal daquela formal e puramente organizacional. No entanto, proponho aqui uma reflexo ou seria mais uma provocao. As evolues da teoria administrativa ocorridas durante o sculo XX parecem, de certa forma, relativizar o sentido do modelo burocrtico. Logo aps Frederick Taylor e Henri Fayol, nos anos 1910, o termo motivao comeou a ser usado na teoria administrativa. Isso significa que, a partir da dcada de 1920, a motivao passou a ser um dos elementos mais relevantes destas teorias. Mas, depois, surge um problema de planejamento e controle gerencial. Como que se reage a choques e mudanas externas? E como engajar pessoas em sistemas de controle de qualidade? Em seguida, preciso examinar a evoluo dos formatos organizacionais. Como que organizaes hierrquicas tradicionais podem evoluir para outras formas como as matriciais, onde uma pessoa tem mais de um chefe ou responde a mais de um centro de autoridade, ou as adocratas, que se reconfiguram permanentemente?
Furthermore, bureaucracy is a formal structure with positions that have established rights and duties. These positions are usually provided through controlled processes in which knowledge is the key. People are selected because they know something and not because they are someones child or have a social capital. This criterion of knowledge to fill the posts is vital in the definition of bureaucracy. To close this brief description of the Weberian model, it is interesting to emphasize that communications are also essentially formal, written and recorded. The decisions, very characteristic, are impersonal and based on rationality, not on personal relationships. Back to the present, it is very curious to realize that, if we think of what is said today about the reform of the Judiciary in Brazil, the ideal would be to have the bureaucratic model. The best solution would be to implement an efficient and impersonal model, that would isolate aspects of nepotism and separate the personal life from that formal and purely organizational one. However, I propose a reflection or rather a provocation. The evolution of administrative theory occurred during the 20th century seems somehow to render relative the sense of the bureaucratic model. Right after Frederick Taylor and Henri Fayol, in the 1910s, the term motivation began to be used in administrative theory. It means that, from the 20s on, motivation has become one of the most relevant elements of these theories. But then there is a problem of planning and management control. How to react to external shocks and changes? And how to engage people in quality control systems? Now we must examine the evolution of organizational formats. How is that traditional hierarchical organizations can evolve into other forms, as matricial organizations, where a person has more than one boss or responds to more than one center of authority, or adhocrat organizations, that reconfigure themselves constantly?
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Outra questo que se coloca o trabalho em equipe. Como que se garante motivao, controle e aferio de desempenho dentro de um trabalho em equipe? Como as organizaes se reconfiguram rapidamente? E de que forma os sistemas de informao e todo o conhecimento de tecnologia de informao impactam esses problemas citados anteriormente? significativo perceber que parece estar havendo uma consolidao, ou pelo menos o incio de uma consolidao, do que seria um modelo ps-burocrtico de organizao. Ou seja, as organizaes, especialmente as da esfera privada, considerariam essa descrio feita por Weber como inadequada e talvez at ofensiva. Quando se diz que algo burocrtico, na verdade, est sendo feita referncia aos aspectos negativos da burocracia em termos de lentido, por exemplo. Essa definio do modelo ps-burocrtico coloca grandes desafios questo da administrao da justia. Obviamente, o modelo burocrtico em si, como definido por Weber, parece no ser satisfatrio para atender as demandas atuais de eficincia, flexibilidade e resposta. Porm, esta passagem muito difcil, porque importar modelos de gesto da administrao de empresas para a administrao pblica e, especialmente, para a judiciria, absolutamente inadequado. A administrao do Poder Judicirio tem que lidar com problemas e requisitos muito especficos, como garantir a independncia do juiz e a equidade no processo e at lidar com aspectos de direito processual bastante complexos. Portanto, no se trata, simplesmente, de aplicar o que feito na rea privada, mas de enfrentar o desafio de criar um novo modelo de gesto. Claramente, os modelos bsicos de gesto que ns temos hoje, fundados no modelo burocrtico definido h mais de cem anos, so vistos por diversas esferas da sociedade como insuficientes. No tenho ainda uma resposta para esse desafio, mas gostaria de reforar a ideia de que no adianta adaptar o que feito no setor privado. preciso pensar e criar novas solues.
Another question that arises is teamwork. How can we ensure motivation, control and measurement of performance within a working team? How do organizations rapidly reconfigure themselves? And in which ways information systems and all the knowledge of information technology impact these problems aforementioned? It is significant to realize that it seems to be occurring a consolidation, or at least the beginning of a consolidation, of what would be a post-bureaucratic model of organization. In other words, organizations, especially in the private sphere, would consider this description given by Weber inadequate and perhaps offensive. When we describe something as bureaucratic, we are actually referring to the negative aspects of bureaucracy, such as slowness, for example. But this definition of the post-bureaucratic model poses great challenges to the issue of administration of justice. Obviously, the bureaucratic model itself, as defined by Weber, seems not to be satisfactory to meet the current demands of efficiency, flexibility and responsiveness. However, this passage is very difficult, because importing management models from business administration to public and especially judiciary administration, is absolutely inadequate. The administration of the Judiciary Power has to deal with very special problems and requirements, such as ensuring the independence of the judge and fairness in the process and even handle aspects of procedural law that are quite complex. So, it is not simply a question of applying what is done in the private sector, but of facing the challenge of creating a new management model. Clearly, the basic models of management that we have today, based on the bureaucratic model set more than one hundred years ago, are seen by many spheres of society as insufficient. I have not yet an answer to this challenge, but I would reinforce the idea that it will not be not helpful to adapt what is done in the private sector. We need to think and create new solutions.
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O SERvIO PbLICO COMO EMPREGAdOR: FUNO E PERSPECTIvAS dA FORMAO PROFISSIONAL PARA O EXERCCIO dE EMPREGO PbLICO NA ALEMANHA THE PUbLIC SERvICE AS AN EMPLOYER: FUNCTION ANd PERSPECTIvES OF PROFESSIONAL TRAINING FOR PUbLIC OFFICES IN GERMANY
LUDGER SCHRAPPER PRESIDENTE DA ESCOLA SUPERIOR DE ADMINISTRAO PBLICA DE NORDRHEIN-WESTFALEN PRESIDENT OF FACHHOCHSCHULE FR FFENTLICHE VERWALTUNG (FHV) NORDRHEIN-WESTFALEN
1. EM LUGAR DE UMA INTRODUO, UMA PREVISO Alemanha, ano de 2030: Katharina Mller tem 18 anos e dentro de poucos meses concluir o ensino mdio. Ela pode contar com uma boa nota final. Seu maior interesse so lnguas, mas nas disciplinas das cincias naturais ela tambm tem apresentado bom desempenho. De todo modo, Katharina almeja cursar a universidade, mas ainda no sabe que carreira seguir. Katharina filha nica do casal Mller. J que ambos os pais trabalham, ela permanece muito tempo na casa da av de 75 anos, que se aposentou h pouco. O av de Katharina trabalha na Cmara Municipal; a fim de atender ao pedido de seu empregador, ele adiou sua aposentadoria at completar 78 anos de idade. De acordo com a Agncia Federal de Emprego, Katharina tem aptido para eletrnica. Todos os candidatos a emprego tero de entrar em contato com a Agncia Federal de Emprego. Com base em uma nova lei, todos os que concluem o ensino mdio devem ser registrados pela Agncia. O Governo Federal teve de implementar esta nova lei, a fim de proteger os alunos menores de idade do assdio dos headhunters de empresas privadas. H dois anos proibiu-se que consultores ofeream seus servios de intermedia-
1. INSTEAD OF AN INTRODUCTION, A PREVIEW Germany in the year 2030: Katharina Mller is 18 years old and within a few months will complete her school career. She can count on a good final grade. Her greatest interest is in languages, but in the disciplines of natural sciences she has also performed well. Anyway, Katharina aims to attend college, but she does not know which career to pursue. Katharina is an only child. Since both parents work, she spends a lot of time with her 75 year old grandmother, who recently retired. Katharinas grandfather works in the town hall. In order to meet his employers requirements, he has postponed his retirement until he is 78 years old. According to the Federal Employment Agency, Katharina has aptitude for electronics. All candidates for employment will have to contact the Federal Employment Agency. Based on a new law, all high school graduates must be registered by the Agency. The Federal Government had to implement this new law to protect underage students from harassment of private headhunters. Two years ago, consultants
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o na vizinhana de escolas pblicas. Katharina tambm j recebeu vrias ofertas, em que lhe prometeram que ela ganharia uma recompensa no valor de 25.000 se estudasse em determinadas universidades. Houve at o caso de um banco que ofereceu aos pais de Katharina uma penso mensal no valor de 1.000 se eles assinassem um contrato formao profissional. O pas no qual Katharina vive perdeu cerca de 7% de sua populao durante os ltimos 20 anos. Ao mesmo tempo, a populao desse pas est envelhecendo drasticamente. A expectativa mdia de vida da populao aumenta cerca de quatro meses ao ano. Se no incio dos anos 2000 a relao entre ativos e inativos era de 100/50, hoje essa relao j se encontra na faixa de 100/70. A quantidade de formandos do ensino mdio caiu de aproximadamente 1 milho no ano de 2005 para 700.000 no ano de 2030. Ou seja, caiu 30%! Agora vamos voltar ao ano de 2010 e falar sobre a formao profissional na rea do servio pblico na Alemanha. Mesmo assim, seria aconselhvel no deixar de lado o cenrio que acabamos de imaginar.
were forbidden to offer their intermediation services in the vicinity of public schools. Katharina has also received several offers, where she was promised to earn 25,000 if she would study in certain universities. There was even the case when a bank offered her parents a monthly pension amounting to 1,000 if they signed a contract for her training. The country in which Katharina lives has lost about 7% of its population during the last 20 years. At the same time, the population of this country is aging dramatically. The average life expectancy of its population grows by about 4 months a year. If in the early 2000s the relation between employees and retirees was 100/50, now this relation is already in the range of 100/70. The number of students completing high school decreased from approximately 1 million in 2005 to 700,000 in 2030. In other words, dropped by 30%. Now let us return to 2010 and talk about training in the area of public services in Germany. Even so, it would be advisable not to overlook the scenario that we just imagined.
2. DEFINIO E QUADRO DE FUNCIONRIOS DO SERVIO PBLICO NA ALEMANHA Quando falamos do servio pblico na Alemanha, em primeiro lugar nos referimos aos funcionrios das esferas de governo: a Federao, os 16 estados, e as entidades locais (municpios), divididas em municipalidades e comarcas. Adicionalmente, h as entidades responsveis pela chamada administrao federal indireta, que tambm cumprem tarefas superiores, mas so juridicamente independentes. Cabe mencionar aqui as entidades responsveis pelo Seguro Social, a Agncia Federal de Emprego, mas, em escala crescente, tambm as universidades. O servio pblico na Alemanha no inclui (mais) os grandes fornecedores de servios de infraestrutura, como estradas de ferro, correios e telecomunicaes. Por esse motivo, e em comparao com outros pases, no se deve equiparar os termos servio pblico e setor pblico. Public service in Germany does not include (not anymore) the large suppliers of infrastructural services, such as railroads, postal service and telecomWhen we speak of the German public service, we refer primarily to employees of the different spheres of government that is, the Federation, the 16 states and the local authorities, divided into municipalities and counties. Additionally, there are entities that are in charge of the so-called indirect federal administration, which also undertake superior tasks, but are legally independent. It is worth mentioning the entities in charge of Social Security, the Federal Employment Agency, but also and increasingly, the universities. 2. DEFINITION AND STAFFING OF THE PUBLIC SERVICE IN GERMANY
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No chamado servio pblico na Alemanha, existem atualmente cerca de 4,54 milhes de funcionrios, sendo que 53% so mulheres. Isso significa que 10% dos assalariados trabalham no setor. Comparando essa cifra com a dos vizinhos europeus, a Alemanha se encontra na faixa inferior. Isso se deve principalmente ao fato de que, pouco depois da Reunificao Alem, havia mais 2,2 milhes de funcionrios no servio pblico, ou seja, havia 6,7 milhes de pessoas trabalhando no setor. Essa reduo se deve privatizao das ferrovias e dos correios, mas tambm de reduo de pessoal ocorrida nos ltimos 10 anos. Dividindo o nmero de empregados no servio pblico pelas diversas esferas da estrutura federal, a Federao dispe de um total de 534.000 funcionrios pblicos (sendo que 185.000 so soldados profissionais); os estados somam 2.284.000 funcionrios pblicos; os municpios tm 1.350.000, e as entidades responsveis pela administrao federal indireta tm aproximadamente 380.000. As reas com maior quantidade de pessoas trabalhando no servio pblico so a de educao, seguida das reas segurana social e garantia da segurana interna e externa. Somente na rea de educao trabalham aproximadamente 1,2 milho de pessoas, sendo que mais de 1 milho na esfera estadual. Este nmero significativo, porque demonstra claramente a distribuio das competncias em nossa federao, onde apenas 8 % dos alunos do ensino mdio e 4 % dos estudantes universitrios estudam em instituies de ensino particulares.
munications. For this reason, in comparison with other countries, one should not equate the terms public service and public sector. In the so-called public service in Germany, there are currently around 4.54 million employees, 53% of which are women. This means that 10% of the employees work in this sector. Comparing this figure with that of its European neighbors, Germany is in the lower range. This is mainly due to the fact that 20 years ago, shortly after the German reunification, there were 2.2 million more employees in public service, that is, there were 6.7 million people working in this sector. The decrease is due to the privatization of state-owned railway and postal service, but also to the personnel reduction that occurred in the last 10 years. Dividing the number of employees in the public service through the various spheres of the federal structure, the Federation has a total of 534,000 civil servants (185,000 of which are professional soldiers), the states have 2,284,000, the municipalities have 1,350,000, and the entities in charge of indirect federal administration have approximately 380,000. The areas with the greatest number of people working in public service are education, followed by social security and safeguarding of internal and external security. Only in education there are approximately 1.2 million people working, of which more than 1 million in the sphere of the
3. O SERVIO PBLICO COMO EMPREGADOR Os 4,5 milhes de funcionrios do servio pblico trabalham em todos os tipos de profisses, do soldado profissional at a enfermeira, da advogada at o eletricista. Considerando os diversos grupos de profisses de forma mais detalhada, percebe-se que algumas aglomeraes em determinadas reas surpreendem pouco, como, por exemplo, a enorme proporo de mulheres na rea da educao, principalmente na educao primria e pr-escolar. Mas os aspectos ligados a gnero tambm podem mostrar desenvolvimentos surpreendentes, como o rpido aumento da proporo de mulheres na polcia, que j atinge 20%.
states. This number is significant because it clearly shows the distribution of powers in our federation, where only 8% of high school students and 4% of university students study in private educational institutions.
3. THE PUBLIC SERVICE AS AN EMPLOYER The 4.5 million public service employees work in all kinds of professions, from the professional soldier to the nurse, from the lawyer to the electrician. Considering the various professional groups in detail,
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Considerando as aglomeraes de determinadas profisses no servio pblico em comparao com outros pases, destaca-se a alta proporo de advogados em funes de gesto na administrao pblica. Constitui sem dvida uma peculiaridade alem o dualismo das condies legais de emprego (condies de status). Ns no somente temos o civil servant ou o fonctionnaire public, mas tambm os funcionrios que trabalham setor pblico com base em contratos de trabalho convencionais, como qualquer funcionrio do setor privado. Nesse caso, as condies de trabalho (salrio, horrios, frias etc.) so regulamentadas especialmente com base em acordos coletivos entre sindicatos e empregadores. Alm disso, o servio pblico alemo apresenta outra especificidade, que o grupo dos funcionrios no demissveis (Beamte). De acordo com a Constituio, so-lhes atribudas tarefas especficas. Seus vnculos empregatcios no so regulamentados atravs de contratos individuais ou coletivos, mas apenas com base na Lei. A relao entre eles e os seus chefes (no empregadores) uma relao especial baseada na lealdade. Eles no podem ser demitidos, mas tambm no tm o direito de participar de greves a fim de melhorar suas condies de trabalho. Cabe mencionar tambm que seus seguros doena, velhice e invalidez baseiam-se em sistemas especiais de financiamento com impostos. Isto quanto teoria. Na prtica, h uma grande aproximao ente as condies de emprego de ambos os status. H 25 anos, o trabalho em tempo parcial por parte de servidores pblicos no demissveis era considerado uma violao da Constituio. Hoje os regimes dos funcionrios contratados e dos servidores pblicos n so completamente equiparados. Alm disso, os funcionrios com contratos de trabalho coletivos hoje praticamente tambm no podem ser demitidos. No dia a dia do servio pblico, um cidado no poder distinguir se seu passaporte ou sua carteira de motorista foi emitida por um funcionrio contratado ou por um servidor pblico com estabilidade. Ele tambm no poder saber se a professora de seus filhos servidora pblica ou funcionria contratada. Em opinio pessoal tenho de admitir, que visto de fora, isto tudo no parece ter muito lgica.
we can see that the concentration in certain areas is not surprising, such as the huge proportion of women in education, particularly in primary education and pre-school. But some aspects regarding gender may show surprising developments, such as the rapid increase of women in police work, which now reaches 20%. Considering the concentration of certain professions in public service in comparison with other countries, the high proportion of lawyers in management positions in public administration stands out. Undoubtedly, the dualism of the legal conditions of employment (status conditions) is a German peculiarity. Not only do we know the civil servant or fonctionnaire public but also the employees who work for the public sector on the basis of conventional employment contracts, as any employee of the private sector. Their working conditions (wages, hours, holidays etc...) are based on collective agreements between unions and employers. In addition, German public service has another specificity, which is the group of civil servants for life (Beamte). According to the Constitution, they are assigned specific tasks. Their recruitment is not regulated by individual or collective contracts, but based on the Law. The relationship between them and their bosses (not employers) is a special one, based on loyalty. They cannot be dismissed, but they do not have the right to participate in strikes to improve their working conditions. It is worth mentioning that their insurance systems regarding illness, old age and disability are based on special tax financing systems. So much for theory. In practice, there is a great proximity between the work conditions of both status. Twenty five years ago, a part-time civil servant would be considered a violation of the Constitution. Today the rules for those working in the public sector and for civil servants for life are quite similar. In addition, nowadays, in practice, public officials supported by collective labor contracts cannot be dismissed either. In the regular course of public service, a citizen cannot distinguish if his passport
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Expondo a situao atual do servio pblico em nmeros, a Federao emprega aproximadamente 130.000 servidores pblicos efetivos e 185.000 soldados, e por outro lado aproximadamente 146.000 funcionrios contratados. Os estados empregam 1.240.000 servidores pblicos efetivos e 681.000 contratados, enquanto que a relao nos municpios de 184.000 para 1.107.000. A grande proporo dos servidores pblicos efetivos nos estados se deve ao fato de que as reas de educao, polcia, fazenda e justia pertencem administrao superior, ou seja, so as reas clssicas de atuao dos servidores pblicos com estabilidade.
or his drivers license was issued by an official who works for the public sector or by a public servant for life. He cannot know either whether his childrens teacher is a lifetime civil servant or not. Personally, I must admit that seen from the outside all this seems not to have much logic. As to the current situation of public service in numbers, the Federation employs approximately 130,000 civil servants for life and 185,000 soldiers, and about 146,000 employees. The states employ 1,24 million civil servants for life and 681,000 employees, while the ratio in the cities is
4. FORMAO PROFISSIONAL PARA O SERVIO PBLICO A fim de darmos continuidade ao nosso tema principal, a formao profissional para o servio pblico, faremos uma anlise mais detalhada dos procedimentos de recrutamento. Por um lado, os empregadores pblicos utilizam os mesmos procedimentos de recrutamento que o setor privado, ou seja, recorrem ao mercado de trabalho. Isto se aplica especialmente s profisses acadmicas, como mdicos, engenheiros, economistas etc. H excees na rea dos advogados e pedagogos e, em escala bem menor, na rea de determinadas profisses tcnicas. Depois de sua formao acadmica nas universidades, a grande maioria dos advogados e professores realiza um chamado servio preparatrio (Referendardienst), que regularizado e organizado pelo governo do estado. Esse servio preparatrio concludo por meio do Exame do Estado (Groe Staatsprfung, ou II. Staatsexamen), que a condio bsica para o acesso ao grau superior dos empregos pblicos de carreira, mas tambm para o exerccio da profisso de advogado. Esse exame, no entanto, no garante automaticamente o direito a um emprego no setor pblico; somente 15% dos advogados que o realizam tornam-se servidores pblicos de carreira ou juzes. Alm da contratao de pessoal capacitado atravs do mercado geral de trabalho, h uma segunda opo de recrutamento, que a contratao de pessoas que, aps haverem concludo o ensino mdio, so capacitadas por empregadores pblicos. Cerca de 5 % dos 4,5 milhes de funcionrios
of 184,000 to 1,107,000. The large share of civil servants for life in the states is due to the fact that the areas of education, police, treasury and justice belong to the superior administration, i.e., they are the classic areas of activity of civil servants for life.
4. PROFESSIONAL TRAINING FOR PUBLIC SERVICE In order to give continuity to our main theme, professional training for public service, we will focus on a more detailed analysis of recruitment procedures. On the one hand, public employers use the same recruitment procedures as does the private sector: they go to the labour market. This applies especially to academic professions, i.e. doctors, engineers, economists etc. There are exceptions in the area of lawyers and educators, and, in a much smaller scale, in that of certain technical professions. After the academic graduation in the universities, the vast majority of lawyers and teachers must participate in what is called a preparatory service (Referendardienst), which is regulated and organized by the state government. This preparatory service is terminated by the State Examination (Groe Staatsprfung, or II. Staatsexamen), which is the basic condition of access to higher grade of public service, but is also required to be a lawyer. This examination, however, does not directly entitle someone to an employment in the public sector; only 15% of the lawyers who pass it become judges or civil servants for life.
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se encontram empregadas em processo de capacitao. H que distinguir entre as profisses gerais com base em um perodo de aprendizagem e com base no sistema j instaurado de formao profissional, que tambm chamado de Sistema Dual de Capacitao, porque a empresa empregadora, onde se realiza o processo de capacitao, opera em estrita cooperao com a escola (pblica) profissionalizante. Refiro-me ao conjunto de todas as profisses da capacitao profissional, comeando pelo A de Anlagenelektroniker (tcnico de equipamentos eletrnicos) at o Z de Zahnmedizinische Assistentin (atendente odontolgico). O setor pblico executa a capacitao profissional muitas vezes excedendo at suas prprias necessidades. Com isso ele assume uma funo poltica muito importante dentro do mercado de trabalho. H, por outro lado, a formao profissional nas chamadas profisses administrativas, que so modeladas de acordo com as necessidades do servio pblico. A formao profissional trata de capacitaes para atividades mais simples, mas existem, ainda, cursos profissionalizantes acadmicos, que em sua grande maioria so realizados em escolas superiores (Fachhochshulen) de administrao pblica. Em ingls, essas escolas so chamadas de Universities of Applied Sciences. Em todo o territrio alemo contamos com 30 escolas desse tipo, onde estudam cerca de 30.000 estudantes. As entidades mantenedoras dessas escolas so os governos estaduais, j que a Federao possui a sua prpria escola. A maior dessas instituies de ensino a Escola Superior de Administrao Pblica de Nordrhein-Westfalen (Fachhochschule fr ffentliche Verwaltung des Landes Nordrhein-Westfalen), que conta com 6.200 alunos. Uma das menores a Escola Superior de Jurisprudncia de Nordrhein-Westfalen (Fachhochschule fr Rechtspflege Nordrhein-Westfalen), com 400 estudantes. O sistema dos cursos oferecidos dual, ou seja, as etapas tericas e cientficas se alternam com as etapas prticas. Analisemos esse tipo de formao profissional mais detalhadamente. Quem est sendo formado, qual o papel das instituies de ensino profissionalizante no mbito do ensino superior, e quais so as tendncias e perspectivas de desenvolvimento?
In addition to the hiring of qualified personnel in the labour market, there is a second way of recruiting, which is hiring people who, after having finished high school, are trained by public employers. About 5% of the 4,5 million civil servants are trainees. There is a distinction between professions, that may result from a period of learning and from a training system already in place, which is also called the Dual Training System, because the employer operates in strict cooperation with the professional (public) school. I refer to the set of all the professions covered by professional training, from A, Anlagenelektroniker [electronics technician], to Z, Zahnmedizinische Assistentin [dental attendant]. The public sector often provides professional training even exceeding its own needs. It thus assumes a very important political function inside the labour market. There is, on the other hand, professional training in the so called administrative professions, which are modeled according to the needs of the public service. Professional training deals with training for simpler activities, but there are also academic courses, that, in their majority, are held at universities of public administration. Using a common term in English, these are called Universities of Applied Sciences. In the German territory there are 30 colleges of this kind, attended by about 30,000 students. The entities that maintain these colleges are state governments, since the Federation has its own schools. The largest one is the University of Public Administration of Nordrhein-Westfalen (Fachhochschule fr ffentliche Verwaltung des Landes Nordrhein-Westfalen), which has 6,200 students. One of the smallest faculties is the Faculty of Jurisprudence of Nordrhein-Westfalen (Rechtspfleger Fachhochschule fr Nordrhein-Westfalen), with 400 students. The system of courses offered is dual, i.e. theoretical and scientific stages alternate with practical ones. Lets analyze this type of training in more detail. Who is being trained, which is the role of the institutions that offer professional academic courses, and which are the trends and development prospects?
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5. FORMAO ACADMICA NAS ESCOLAS SUPERIORES DE SERVIO PBLICO (FACHHOCHSCHULEN DES FFENTLICHEN DIENTSE - FHD) H cerca de 35 anos, assistimos fundao de um grande nmero de escolas de servio pblico. Esses novos estabelecimentos foram a consequncia de uma reforma do ensino realizada no final dos anos 1960, cuja finalidade era a formao acadmica e a valorizao dos estudos voltados para determinadas profisses. Destacaram-se as profisses nas reas social, pedaggica e de engenharia. Impulsionada pelas ideias de uma comisso de reforma a respeito do futuro do servio pblico, e implementada pelo Parlamento Federal, a conferncia de secretrios do Interior (dos estados) decidiu transferir esse desenvolvimento rumo formao acadmica tambm para o mbito da formao de servidores efetivos do Servio Pblico Superior. Esse sevio frequentemente chamado de a coluna vertebral da administrao pblica, pois nele so recrutados os funcionrios encarregados das sees administrativas, cuja tarefa a preparao, mas frequentemente tambm a execuo de decises que tm repercusso interna e externa, assim como a realizao de tarefas de gesto de nvel mdio da administrao pblica.
5. ACADEMIC TRAINING IN THE UNIVERSITY OF PUBLIC ADMINISTRATION (FACHHOCHSCHULEN DES FFENTLICHEN DIENSTE - FHD) About 35 years ago, we watched an outbreak of new colleges in the area of public administration. The foundation of these new schools was the result of an educational reform undertaken in the late 1960s, with the purpose of training and enhancing academic studies focused on certain professions. The highlights were professions in the areas of social services, education and engineering. Driven by the ideas of a reform commission on the future of public service, and implemented by the Federal Parliament, the conference of interior secretaries (of the states) decided to transfer this development of academic training also to the training of civil servants for Superior Public Service. This service is often called the backbone of public administration, since it supplies servants in charge of administrative sections, who will be responsible for preparing and often taking decisions of internal and external impact and for executing medium level management tasks. Considering the area of activity and the content of the
Considerando a rea de atividade e os contedos dos respectivos cursos profissionalizantes, gostaria de apresentar os quatro grupos mais significativos:
training courses, I would like to present the four most significant groups: 1. Concerning the number of civil servants, the largest
1. Quanto ao nmero de funcionrios pblicos, o maior grupo o Servio Pblico Superior da Polcia; dos cerca de 6.200 estudantes da Escola Superior de Administrao Pblica de Nordrhein-Westfalen, 4.000 so funcionrios da polcia. At a dcada de 1990 contvamos com um modelo de 3 etapas para o desenvolvimento dos recursos humanos. Somente na 2 etapa do Servio Pblico Superior os funcionrios da polcia eram capacitados para a execuo de tarefas de gesto por meio de um curso profissionalizante nas Escolas de Servio Pblico. Esse modelo ainda est sendo aplicado por uma parte das polcias dos estados (a polcia de segurana pblica e a polcia judiciria na Alemanha so de responsabilidade dos governos estaduais; a Federao
group is the Police Superior Public Service; 4.000 out of the 6.200 students of the Faculty of Public Administration of Nordrhein-Westfalen are police officers. Until the 1990s we had a 3 steps model for the development of human resources. Only at the second stage os Superior Public Service was the police official trained to perform managerial tasks in a professional course in a Faculty of Public Administration. This model is still being applied by a few states police corps (public security and judicial police in Germany are the responsibility of state governments, the Federation provides only the police for border protection and for railroad transportation). Other police departments, such as the police of
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disponibiliza apenas a polcia de fronteira e a polcia de transporte para as ferrovias). Outras polcias, como por exemplo a polcia de Nordrhein-Westfalen, vm adotando h mais de 10 anos um modelo de 2 etapas. Todos os jovens funcionrios da polcia estudam em uma Escola de Servio Pblico durante trs anos. 2. O segundo maior grupo a Administrao Pblica, sendo que h uma diferena entre a administrao estadual e municipal. A administrao geral das diferentes esferas de governo pesa claramente em nmero, o que no surpreende, visto que dentro da estrutura federal os municpios e as comarcas executam uma grande variedade de tarefas.
Nordrhein-Westfalen, have adopted for more than 10 years the 2 steps model. All the young police officers study for three years in a Faculty of Public Administration. 2. The second largest group is Public Administration, and there is a difference between state and municipal administrations. The general administration of the different spheres of government clearly weighs in number, which is not surprising, since within the federal structure the municipalities and counties perform a wide range of enforcement tasks. 3. Another large category of Superior Public Service is
3. Outro grande grupo do servio pblico superior a Administrao Financeira e Fiscal. A formao profissional nessa rea baseia-se em diretrizes especficas, visto que a legislao fiscal competncia da Federao.
Financial Administration and Auditing. The training in this area is based on specific guidelines, since the tax laws are the responsibility of the Federation. 4. The fourth largest group refers to functions of juris-
4. O quarto maior grupo se refere a funes da jurisprudncia, exceto juzes. As diretrizes da formao profissional nessa rea tambm so regulamentadas por Lei. A formao profissional projetada especialmente para a carreira de oficial de justia, ao qual so atribudas diversas tarefas a serem realizadas independentemente em um sistema judicirio, como aquelas relacionadas a assuntos de famlia e sucesso, processos de execuo judicial ou insolvncia, assim como tarefas de oficial de registro.
prudence, except judges. The guidelines for professional training in this area are also regulated by law. The training is designed specifically for the careers of judicial officer, to which are assigned various tasks to be performed independently in a judicial system, tasks related to family matters and succession, processes of foreclosure or bankruptcy, as well as tasks of the record official. Looking back on the nearly 40 years history of the
Fazendo uma retrospectiva da histria de quase 40 anos das Escolas de Servio Pblico, podemos constatar diversas fases de desenvolvimento. A primeira fase foi a da fundao das escolas, que se iniciou nos anos 1972/73 e durou at 1979. Um fato interessante que uma das ltimas escolas a serem criadas foi a Escola Superior da Federao. Aps essa primeira fase, constatamos uma fase de consolidao, que ocorreu durante a dcada de 1980, e que foi especialmente marcada pelos esforos para garantir os padres acadmicos. A partir dos anos 1990, houve grande influncia da nova escola poltico-administrativa do New Public Management. Em resposta a um novo entendimento da administrao influenciado por aspectos econmicos e de gesto, as Escolas de Servio Pblico implementaram cursos com uma maior quantidade de contedos de gesto empresarial.
schools of public administration, one can see different stages of development. The first one was that of the foundation of new schools , which began in 1972/73 and lasted until 1979. An interesting fact is that one of the last colleges to be established was the Federation School. After this first stage, we see a consolidation phase, which occurred during the 1980s, and was especially marked by efforts to ensure academic standards. Since the 1990s, there was great influence of the new political-administrative school of New Public Management. In response to a new understanding of administration influenced by economic and management aspects, these schools implemented business management-oriented courses. These courses were seen as a substantial element for the modernization of
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Considerava-se que esses cursos seriam um elemento substancial para a modernizao da administrao, que se havia tornado to necessria e urgente. Quanto sustentabi1
administration, which had become so necessary and urgent.1 As to the persistence of these tendencies, it should be noted that the number of students that study Business Administration and Public Administration in the schools of public administration in Nordhein-Westfalen has been reduced by half. Since the mid-1990s, and due to developments in the eastern states after the reunification of Germany, we see a revival of a debate that has accompanied the Schools of Public Service in a latent form since its foundation: the demand for outsourcing, i.e. the transformation into real universities. This was also perceived as a contribution to the modernization of public administration. It is important to note that the Schools of Public Service are considered and understood as so-called inner faculties, organs subordinate to specific ministries such as ministries of interior, finance or justice and who generally do not have corporate status. Although they can often enjoy the right to establish their own statutes and a law that regulates the freedom of teaching and research, the right towards the establishment of the statutes is subject to an authorization, the restrictions also apply to human resources autonomy. Students do not enroll directly. They are transmitted through the companies responsible for vocational training. However several states have passed on the administration courses to universities, or in the case of Berlin, the fused inner faculties and universities. This, however, has not been a general trend. Perhaps because professional training in administration has not yet shown significant improvements. The outsourcings were considered for financial reasons (especially in Berlin) as political and academic programming.
lidade de tais tendncias, deve-se observar que o nmero de estudantes que cursam Administrao de Empresas e Administrao Pblica nas Escolas de Servio Pblico em Nordrhein-Westfalen (ano letivo de 2010/2011) foi reduzido pela metade. Estamos observando um renascimento dos generalistas com orientao jurdica. Desde meados dos anos 1990, e devido aos avanos nos estados orientais aps a Reunificao da Alemanha, constatamos a reanimao de um debate que tem acompanhado as Escolas de Servio Pblico de forma latente desde a poca de sua fundao: a demanda por externalizao, ou seja, por sua transformao em universidades de verdade. Isso tambm foi entendido como sendo uma contribuio para a modernizao da administrao pblica. importante saber que as Escolas de Servio Pblico so consideradas e entendidas como escolas internas, rgos subordinados a ministrios especficos, como os ministrios do Interior, das Finanas ou da Justia, e geralmente no possuem status de corporao. Apesar de geralmente poderem desfrutar do direito de estabelecer seus prprios estatutos, e de um direito que regulamenta sua liberdade de ensino e pesquisa, o exerccio do direito em relao ao estabelecimento dos estatutos est sujeito a uma autorizao; as restries tambm so vlidas para a autonomia relativa aos recursos humanos. Os estudantes no se matriculam diretamente. Eles so encaminhados atravs das empresas responsveis pela formao profissional. Entretanto, vrios estados transferiram parcial ou integralmente os cursos de administrao para universidades externas, ou, como no caso de Berlim, fundiram as escolas internas e as universidades externas. No entanto, isso ainda no tem sido uma tendncia geral. Talvez pelo fato de a formao profissional na rea de administrao nas universidades externas at a presente data ter apresentado melhores resultados quanto ao rendimento e quanto s concluses.
1. Ver Behrens et al., Den Staat neu denken (Repensando o pas), 1995.)
1. Vide Behrens entre outros, Den Staat neu denken, 1995 [N.d.T: Repensando o Pas]
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A fase atual de desenvolvimento, iniciada em meados da primeira dcada dos anos 2000, marcada pelo processo de Bolonha, iniciado pelos governos europeus em 1999, com o objetivo de complementar a concretizao do mercado interno europeu com um mercado de educao europeu: o chamado Espao Europeu de Ensino Superior. A comparabilidade das concluses atravs da implementao dos diplomas Bachelor/Master, e um maior grau de flexibilidade durante a formao universitria foram a viso dos criadores desse processo. Na Alemanha as reformas de Bolonha foram conjugadas a uma ampla reforma de todo o ensino superior. Os principais objetivos so uma melhor orientao para a profisso, a reduo do tempo de estudo, e a reduo da proporo de desistncia. Se esses objetivos foram alcanados, deixarei em aberto. Uma resposta mais ou menos razovel excederia o escopo desta apresentao. Mesmo assim, eu gostaria de mencionar um aspecto que me parece incontestvel. As reformas de Bolonha vieram promover o nivelamento do sistema dual do ensino superior da Alemanha, ou seja, da diversificao das instituies de ensino superior classificando-as em universidades e faculdades. E essa tendncia tambm influencia as Escolas de Servio Pblico.
The current phase of development, initiated in the first decade of 2000, is marked by the Bologna process, initiated by European governments in 1999 with the objective of complementing the implementation of the European internal market with an European education market: the so-called European Higher Education. A comparison of findings through the implementation of diplomas bachelor / master, and a greater degree of flexibility during university education were the vision of the creators of this process. Germany joined the Bologna reforms to a broader reform of the entire college. The main objectives are a better guide to the profession, the reduction of study time, and reducing the dropout rate. If these goals were reached, I leave it open. A reasonable answer would exceed the scope of this presentation. Still, I would like to mention one aspect that seems indisputable. The Bologna reforms promote the leveling of the dual system of higher education in Germany, namely the diversification of higher education institutions classifying them into universities and colleges. And this tendency also influences the Schools of Public Service. A great opportunity that Bologna offers the Schools of
A grande oportunidade que Bolonha oferece s Escolas de Servio Pblico, no entanto, requer uma descrio bem mais detalhada. Ela consiste principalmente em garantir os padres acadmicos da formao, e em ampliar o status de curso superior. Pois os problemas tpicos de adaptao dos cursos aos padres de Bolonha quase no tangem as Escolas de Servio Pblico. At o momento elas sempre tm oferecido cursos orientados para as profisses, sempre tm concentrado seus currculos em um prazo de 3 anos (6 semestres), e apresentado uma cota de desistncia abaixo de 5 %. Por outro lado, o sistema de reconhecimento de cursos introduzido pelas reformas de Bolonha, ao qual as Escolas de Servio Pblico tambm tm de se submeter, exatamente como todas as outras instituies de ensino superior, promove a igualdade dos diplomas no somente quanto
Public Service, however, requires a much more detailed description. This consists mainly of ensuring the academic standards of training, and increasing the status of college. The typical adaptation problems that cour es face, hardly touch upon the Schools of Public Service. So far they have always offered courses geared to the professions and have concentrated their resumes in a period of 3 years (6 semesters), and presented a dropout share below 5%. On the other hand, the courses accreditation system introduced by the Bologna reforms, which the Schools of Public Service also have to undergo just like all other institutions of higher education, promotes equality of qualifications not only about the quality of content as well as to the form. This causes positive impulses for the quality of vocational
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qualidade de contedo, como tambm forma. Isso traz impulsos positivos para a qualidade dos cursos profissionalizantes. A dependncia de um selo de qualidade, no entanto, fortalece a autonomia das escolas em relao aos ministrios por elas responsveis. Visto que o reconhecimento serve principalmente para a garantia dos padres do ensino superior, isso acaba comprometendo tambm os ministrios que cuidam das escolas. Em seguida so apresentadas algumas ideias sobre possveis desafios para o futuro desenvolvimento da formao acadmica para o servio pblico. Um desses desafios consiste em garantir e ampliar os padres do ensino superior conquistados na rea da formao para o servio pblico. Perigosas so as tendncias a ampliar a influncia dos ministrios, ou seja, a permitir que eles influenciem tambm os contedos e a organizao interna das instituies de forma no usual no caso de escolas. Para citar um exemplo: nos estados de Niedersachsen e de Hamburgo, as escolas da polcia foram rebaixadas para academias pela administrao financeira. Esse procedimento pe em questo os avanos ocorridos durante os ltimos 40 anos. Mais do que nunca um servio pblico moderno e orientado para o cidado necessita no somente de slidos conhecimentos de aplicao e experincia, mas tambm de capacidade de autoavaliao crtica, e de abertura a novas ideias e tendncias. Para que esses objetivos possam ser alcanados, a liberdade do ensino acadmico ainda me parece ser a melhor opo. Alm disso, uma estratgia contra o rebaixamento das Escolas de Servio Pblico consiste em fortalecer o status de curso superior, atravs da ampliao das pesquisas. Mas tendo em conta o forte foco do ensino nas Escolas de Servio Pblico, isso mais fcil de dizer que de fazer. Por outro lado, a estreita integrao dessas escolas com o setor pblico, e o acesso especial aos diversos campos dela resultante, significam um recurso nico que deveria ser explorado ao mximo.
courses. The dependence of a seal of quality, however, strengthens the autonomy of colleges in relation to the ministries responsible for them. Because accreditation is primarily to guarantee the standards of higher education, it can also compromise the ministries that watch over the schools. To conclude this presentation, I present some ideas on possible challenges for the future development of academic public service. One such challenge is to ensure and enhance the standards of higher education gained in training for public service. Dangers resulting from trends to expand the influence of ministries or to allow ministries also influence the content and internal organization of the institution in an unusual way for colleges. To cite one example: in the states of Niedersachsen and Hamburg, the powers of police were downgraded to academies for the financial administration. According to my criteria, this procedure questions the developments over the past 40 years. More than ever a modern public serviceoriented citizen requires not only solid knowledge and application experience, as well as the capacity for critical self-evaluation, and openness to new ideas and trends. In order for these goals to be achieved, the freedom of academic teaching still seems to be the best option. In addition, a strategy against the lowering of Schools of Public Service consist on strengthening the status of college, through the extension of the research. But given the strong focus of teaching in the Schools of Public Service, this is easier said than done. On the other hand, the close integration of these colleges with the public sector, and special access to the various resulting fields, mean an unique resource that should be maximized.
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Outro desafio no concerne somente s Escolas de Servio Pblico, mas ao servio pblico em geral, para no dizer a todos os empregadores: esse desafio se chama desenvolvimento demogrfico. Para explicar esta afirmao, segue um exemplo: a polcia do estado de Nordrhein-Westfalen, que, com 41.000 funcionrios, a maior da Alemanha, necessitar, a partir do prximo ano, de 1.400 funcionrios jovens por ano para cobrir o pessoal que se retirar por motivo de aposentadoria. Para que se possa obter bons resultados no processo de seleo, sero necessrios 6-7 candidatos para cada cargo a ser preenchido. Dentro de poucos anos teremos de convencer entre 12 e 15% de todos os formandos das escolas a se candidatarem a cargos na polcia de Nordrhein-Westfalen. Isso sem falar em todas as demais reas, como a da administrao geral e financeira, ou a da jurisprudncia. A soluo s pode ser uma ampla oferta de formao, muito atrativa para jovens. E essa oferta ter de incluir a possibilidade de educao, qualificao e aprendizagem contnua ao longo da carreira profissional, para no dizer ao longo de toda a vida. Este um dos motivos pelos quais a Escola Superior de Administrao Pblica de Nordrhein-Westfalen oferecer, o mais tardar a partir do ano de 2012, cursos de educao continuada na rea da administrao pblica.
Another challenge concerns not only the school of the Public Service, but public service in general, not to say to all employers: this challenge is called demographic development. To explain, an example: The police of the State of Nordrhein-Westfalen, which with an amount of 41,000 employees is the largest in Germany, will require, starting next year, 1,400 young workers a year to match the personal that will withdraw due to retirement. In order to obtain good results in the selection process, will need six to seven candidates for each office to be filled. Within a few years we will have to convince between 12 and 15% of all school graduates to apply for police jobs in Nordrhein-Westfalen. Not to mention all the other areas, i.e., general and financial administration, as well as jurisprudence. The solution can only be a wide range of training, very attractive to young people. And this offer will include the possibility for education, skills and lifelong learning throughout the career, if not throughout life. This is one of the reasons why the School of Public Service will offer Nordrhein-Westfalen, from 2012 onwards, continuing education courses in the area of public administration.
6. INSTEAD OF A CONCLUSION, A RETURN TO THE FUTURE
6. EM LUGAR DE UMA CONCLUSO, UMA VOLTA AO FUTURO Alemanha, ano de 2030: no estado de Nordrhein-Westfalen 67.000 alunos esto concluindo o ensino mdio, entre eles Katharina Mller. Em comparao com os padres de 2010, 10% desses alunos teriam de escolher a Escola Superior de Administrao Pblica de Nordrhein-Westfalen para a sua formao profissional. Mas mesmo aqui, o tempo no parou. O servio pblico em todos os seus setores diminuiu consideravelmente. O E-Government substitui servios que h 20 anos ainda eram executados por pessoas. O engajamento da sociedade civil e o voluntariado assumem funes sociais e pedaggicas que antes eram consideradas exclusivamente estatais. Alm disso, conseguiu-se alcanar novos padres na rea da poltica de imigrao. Desde 2018 a Alemanha dispe de um Ministrio da Imigrao.
Germany in the year 2030: in Nordrhein-Westfalen 67,000 students are finishing high school, including Katharina Mller. Compared to the standards of 2010, 10% of students would have to choose the School of Public Service Nordrhein-Westfalen for their professional training. But even here, time has not stopped. The public service in all its sectors decreased considerably. E-Government replaced service, that 20 years ago were executed by people. The engagement of civil society and voluntary work take on social and educational functions that once were considered exclusively of the state. In addition, we were able to reach new standards in the area of immigration policy. Since 2018 Germany has it own ministry of immigration.
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Katharina Mller decide estudar na Escola Superior Ocidental de Administrao Pblica, uma instituio de ensino superior muito moderna e bem equipada (trata-se de uma escola conjunta dos estados de Nordrhein-Westfalen e Rheinland-Pfalz). A administrao pblica como empregadora possui uma excelente imagem externa, e no somente na Alemanha. O engajamento no bem-estar da sociedade, em um convvio adequadamente regulamentado, na conservao dos recursos naturais, e a garantia de oportunidades iguais convencem a maioria dos jovens. Uma modelao flexvel dos horrios de trabalho, o teletrabalho e a promoo de jovens pais, assim como uma ampla gama de ofertas na rea da educao continuada, facilitaram a deciso de Katharina.
Katharina Mller decided to study at the Western School of Public Service, a very modern and well equipped institution of higher education. Public administration as the employer is seen as an excellent option, not only in Germany. The engag ment for the welfare of society, the conservation of natural resources and the guarantee of equal opportunities are what motivate the majority of young people. A model of flexible working hours, teleworking and the incentive for young parenting as well as a wide range of offerings in the area of continuing education facilitated Katharinas decision.
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A AdMINISTRAO PbLICA NA ALEMANHA: A MOdERNIZAO COMO TAREFA CONTNUA PUbLIC AdMINISTRATION IN GERMANY: MOdERNIZATION AS A CONTINUOUS TASK
RAINER FREY PROFESSOR DA UNIVERSIDADE DE MNSTER PROFESSOR AT THE UNIVERSITY OF MNSTER
Cada amanh, dentro de dois dias, se ter tornado um ontem. Cada modernizao em um determinado futuro ser considerada obsoleta. A administrao estadual e municipal na Alemanha tambm no escapa desse jogo cansativo da relatividade. Qualquer proposta de reforma, qualquer estratgia de modernizao acabar provando ser insuficiente. Mesmo assim, ou talvez exatamente por causa disso, a presso por reformas e mudanas no governo e na sociedade est sempre presente. Alm da poltica e da cincia, empresas de consultoria de renome vm se dedicando intensamente modernizao das administraes. Os esquemas, estratgias e ideias por elas desenvolvidos no significam, portanto, uma esperana terica, mas em muitas administraes j esto sendo concretizados e postos em prtica. Em poucas palavras: o empenho nas reformas vem acompanhando a Administrao Pblica desde a sua existncia. E no sem razo que estamos (outra vez) falando de uma verdadeira onda de modernizao nas administraes. No entanto, justamente na rea das administraes pblicas que a enorme dedicao s reformas e o empenho na modernizao so to difceis de ser concretizados diante das estruturas muitas vezes ultrapassadas e quase estticas. A modernizao permanece sendo uma tarefa contnua, justamente para que no se capitule diante da imobilidade das lentas tradies administrativas. As origens da administrao pblica como instituio se encontram na poca do absolutismo (regime poltico em que o monarca detinha o controle total sobre o exerccio do poder do Estado, de 1648 at 1789). Aquele foi o momento em que houve uma separao da justia e da administrao, que ao mesmo
Each tomorrow within two days will become a yesterday. Each modernization in a particular future will be considered obsolete. The state and municipal administration in Germany can not escape this exhausting game of relativity. Any proposed reform, any modernization strategy, eventually proving to be insufficient. Nevertheless, or perhaps precisely because of this, the pressure for reforms and changes in government and society is always present. Beyond the politics and science, leading consulting firms have dedicated themselves to the highly modernization of administrations. Schemes, strategies and ideas developed by them does not mean, therefore, a theoretical hope, but in many administrations are now being implemented and put into practice. In a nutshell: the reforms have been following commitments by the Administration since its existence. And not without reason, we are (again) talking about a true wave of modernization in government. However, it is precisely in the area of government, the enormous dedication to reforms and the modernization endeavors are so difficult to be realized before the structures often outdated and nearly static. Modernization remains a continuing task, just not to capitulate before the immobility of slow administrative traditions. The origins of public administration as an institution are in the age of absolutism (political system, where the monarch had total control over the exercise of state power - from 1648 to 1789). This was the time when there was a separation of justice and administration,
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tempo provocou uma maior participao dos cidados na execuo das tarefas comuns. Neste sentido, a administrao significava a soberania a servio do Estado. No Estado constitucional (um Estado em que o exerccio do poder do Etado est sujeito s restries impostas por uma constituio) a administrao continuou se desenvolvendo. Devido introduo de constituies documentadas, aos princpios da separao de poderes, aos estados de direito, vinculao da administrao s autorizaes legais, proteo legal e sua reorganizao, a administrao foi se desenrolando e se desenvolvendo. Com a industrializao e a urbanizao, que no sculo XIX cresciam em velocidade vertiginosa, o volume das tarefas pblicas tambm aumentou drasticamente e teve como consequncia um crescimento infindvel da complexidade do trabalho administrativo. Esse aumento na quantidade das tarefas pblicas pode ser constatado at nos dias atuais, e caracteriza o caminho de desenvolvimento das administraes: de uma administrao de ordem e de soberania, para uma administrao prestadora de servios, que progressivamente assume a gesto de todas as reas sociais. Esse crescimento, porm, mudou pouco a estrutura intrnseca das administraes. Os princpios e os procedimentos continuaram os mesmos. Uma necessria adaptao da organizao administrativa s mudanas da sociedade no aconteceu. Nesse contexto, possvel esclarecer o seguinte: as condies polticas e sociais podem mudar consideravelmente; as administraes pblicas quase no mudam. Considerando os eventos histricos dos anos de 1919, 1933, 1949 e 1989, deve-se constatar que essas considerveis transformaes poltico-sociais no tiveram qualquer influncia sobre a continuidade da administrao interna e externa. A administrao pblica na Alemanha parece ser assustadoramente conservadora quanto sua estrutura. Estruturas organizacionais e comportamentos especialmente voltados para o cumprimento de regras e normas, mas pouco para a gesto dos custos, geraram dficits de rentabilidade e eficincia injustificveis. No obstante, a administrao pblica melhor do que sua fama interna, especialmente quando comparada em nvel internacional. Ainda demonstra ser mais ou menos aberta a reformas. Um rpido olhar sobre os esforos de modernizao desde a dcada de 1980 nos permite constatar que houve reformas realmente importantes. As fontes so tanto de natureza administrativa externa quanto interna. Dessa forma,
at the same time caused a greater citizen participation in the execution of common tasks. In this sense, the administration meant to serve the sovereignty of the tate. In a constitutional state (a state in which the exercise of state power is subject to restrictions imposed by a constitution), the administration continued to develop. Due to the introduction of constitutions documented, the principles of separation of powers, state of law, binding legal commitments to the financial, legal protection and its reorganization, the administration was developing and unfolding. With industrialization and urbanization in the 19th century grew at breakneck speed, the volume of public tasks also increased dramatically and resulted in an endless growth of the complexity of administrative work. This increase in the amount of public tasks can be seen even today, and defines the process of developing government: an administration order and sovereignty, to a management services provider, progressively takes over the management of all social areas. This growth however, has changed little intrinsic structure of government. The principles and procedures remained the same. A necessary adjustment to changing administrative organization of society has not happened. Through these placements I intend to clarify the following: the political and social conditions may change considerably, the government almost no change. Considering the historical events of the years 1919, 1933, 1949 and 1989, it must be noted that these significant political and social changes had no influence on the continuity of internal and external administration. The public administration in Germany seems to be frighteningly conservative as to its structure. Organizational structures and behaviors specifically designed to comply with rules and standards, but little to manage costs, deficits generated profitability and efficiency unjustifiable. Nevertheless, the government is better than its reputation inside, especially when compared internationally. It still proves to be more or less open to reform. By taking just a glimpse of the modernization efforts since the early 80s, we note that there was really important reforms. The sources are both external and internal administrative nature. Thus, the territorial
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as reformas territoriais e funcionais, as reformas financeiras e oramentrias, as reformas disciplinares, ou a construo da administrao na Alemanha Oriental mudaram consideravelmente a imagem e as atitudes das administraes pblicas. Deficincias estruturais e falhas na organizao foram substitudas por unidades administrativas eficientes. Alm disso, o trabalho administrativo nos nveis federal, estadual e municipal foi influenciado pelos objetivos polticos da dissoluo da burocracia, da desregulamentao, da privatizao e da ateno ao consumidor/cidado, e pelos respectivos programas. Outras mudanas se devem ao fato de a sociedade ter-se tornado sumamente exigente e crtica atravs da modernizao interna alavancada pelo New Public Management. Sob esse conceito-chave, que se tornou nacionalmente conhecido como Novo Modelo de Gesto, deu-se incio modernizao da administrao, que vem sendo realizada desde a dcada de 1990. A proposta abrangia diversas possibilidades de melhoria, por exemplo em relao gesto dos recursos humanos, organizao processual (construo e organizao dos procedimentos), a uma gesto de qualidade mais intensiva, a elementos de concorrncia e conceitos da administrao empresarial. Estes conceitos estabeleceram-se em maior ou menor grau dentro da administrao pblica, exigindo dessa forma um entendimento diferenciado de uma atuao administrativa guiada por conceitos econmicos. Alm do conceito do New Public Management, o trabalho administrativo vem sendo especialmente influenciado por misses em que o governo promove os potenciais para a autorregulao da sociedade (aktivierender Staat) e em que os integrantes da sociedade agem como cidados (Brgergesellschaft), assim como por diversas reformas estruturais da administrao. Sobre o verdadeiro impacto das reformas, as opinies divergem bastante. Sabe-se que os processos de mudana em instituies pblicas so penosos e demorados, e que bastante difcil fazer uma avaliao parcial dos resultados. Mas decerto haver uma influncia duradoura sobre o volume das tarefas e sua realizao, quem sabe no que diz respeito concepo de uma crtica abrangente das funes, ou sob a forma de uma Nova Gesto, ou mesmo de uma nfase na eficincia e eficcia da atuao pblica, de uma maior autorresponsabilidade das autoridades, ou de aumento do networking. No que diz respeito imagem pblica, ou seja, relao entre o governo e o cidado, h que se constatar a maior valorizao de uma administrao voltada para o cidado.
and functional reforms, financial reforms and budgetary reforms disciplinary, or construction management in eastern Germany, the picture changed considerably and the attitudes of public administrations. Structural deficiencies and shortcomings in the organization were replaced by efficient administrative units. In addition, the administrative work of federal, state and local political goals was influenced by the dissolution of the bureaucracy, deregulation, privatization and attention to the consumer / citizen, and their respective programs. Other changes are due to the fact that society has become highly demanding and critical internal modernization leveraged through the New Public Management. Under this key concept, which became nationally known as the New Management Model was initiated to modernize the administration, which has been used since the late 1990s. The proposal covered several possibilities for improvement, eg in relation to human resources management, organization, procedural (construction and organization of procedures), quality management to a more intensive competition to elements and concepts of business management. These concepts were established in greater or lesser degree in public administration, thus requiring a different understanding of an administrative action guided by economic concepts. Besides the concept of New Public Management, administrative work has been especially influenced by missions in which the government promotes the potential for autoregulation of society (aktivierender Staat) and that the members of society act as citizens (Brgergesellschaft) as well as several structural reforms of the administration. About the real impact of the reforms, opinions differ greatly. It is known that change processes in public institutions are painful and timeconsuming, and it is quite difficult to make a partial evaluation of the results. But surely there will be a lasting influence on the volume of tasks and their realization, perhaps with regard to the design of a comprehensive critique of the functions or in the form of a new management, or even for an emphasis on efficiency and effectiveness of operations public autoresponse to higher authorities, or to the increase of networking. With regard to public image, that is, the relationship between government and citizen, noting there is a greater appreciation of the citizenoriented administration.
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Todavia, se a palavra reforma abrange o conceito de remodelao, de transformao e de reformatao, e se o conceito de reforma est inerentemente ligado s inovaes e disposio para a realizao de mudanas, fica bem claro que a administrao pblica, no melhor dos casos, tem dado apenas pequenos passos rumo mudana. Por essa razo, quase impossvel fornecer uma resposta clara pergunta sobre se as reformas administrativas realmente tiveram xito no tocante tanto qualidade dos servios quanto s economias delas resultantes. Nas trs ltimas dcadas, a poltica da Federao, dos estados e dos municpios no foi capaz de lanar iniciativas substanciais para a desregulamentao, para a dissoluo da burocracia e para a modernizao da administrao. Ao contrrio, podemos constatar um aumento da regulamentao, que uma carga para os cidados e as empresas, pois dificulta os investimentos e constitui uma barreira para a criao de empregos. De acordo com uma pesquisa realizada pelo Banco Mundial, um empresrio leva 45 dias para fundar sua empresa. Na Inglaterra, em comparao, ele levaria apenas 18, e nos Estados Unidos o processo demoraria apenas 4. Consequentemente (e para os nossos propsitos apenas isso que conta), diremos: o desenvolvimento da administrao pblica no demonstra quaisquer quebras estruturais, apenas adaptaes evolutivas; as estruturas existentes, dentro das quais as reformas foram realizadas, revelaram-se muito flexveis. Todos os projetos de reforma caracterizam-se, portanto, por uma dialtica de conservao e modernizao. Quanto pergunta se houve continuidade ou transformao, podemos dar a seguinte resposta: Sim, mas. Questionando quais seriam as causas desses resultados, podemos verificar que existem diversos aspectos, que no se referem apenas administrao pblica interna, mas tambm ao mbito organizacional, ou seja, s condies polticas, sociais e econmicas. Alm disso, as respectivas lideranas polticas tm evitado a poltica administrativa. Isso fica bem claro diante do fato de, em sua grande maioria, os efeitos da reforma administrativa terem sido incertos, difusos e demorados.
However, if the word reform covers the concept of remodeling, processing and reforming, and if the reform concept is inherently linked to innovation and willingness to carry out changes, then it becomes clear that the public administration , at best, has taken only small steps toward change. For this reason, it is almost impossible to give a clear answer to the question of whether administrative reforms were actually a success - both in terms of quality of services, and the resulting economies. During the past three decades, the policy of the Federation, states and municipalities were not able to launch initiatives for substantial deregulation, for the dissolution of the bureaucracy and modernizing the administration. Rather, it can be seen an increase in regulation, which is a burden for citizens and businesses, because hinders investment and is a barrier to job creation. According to a survey by the World Bank, an entrepreneur will need 45 days to establish your business. In England, by comparison, he would need only 18, and the United States the process will take only four. As a result (and for our purposes is just that what matters) is to say: the development of public administration does not show any structural breaks, only evolutionary adaptations, existing structures, within which the reforms were carried out, proved to be very flexible. All renovation projects are characterized therefore by a dialectic of conservation and modernization. On the question if there was continuity or change, it can present the following response: Yes, but... Questioning what are the causes of these results, it was observed that there are several aspects that do not relate solely to the internal administration, as well as the organizational level, ie the political, social and economic. Moreover, their political leaders have avoided the administrative policy. This is made clear before the fact, for the most part, the effects of administrative reform they have been uncertain, diffuse and delayed. On the other hand, we will soon see, with great certainty,
Por outro lado, com grande certeza, logo veremos os efeitos negativos sob a forma de controvrsias polticas ou de fracos desempenhos, visto que todos os esquemas, estratgias e ideias visaram a aliviar o oramento pblico atravs da reduo das despesas de pessoal. O resultado disso foi o fato de muitas
the negative effects in the form of political controversy, or in the form of poor performance, since all schemes, strategies and ideas aimed at relieving the state budget by reducing staff costs. The result was the fact that many reform projects often come accompanied by job cuts.
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vezes os projetos de reforma virem acompanhados de cortes de empregos. Por esse motivo, o entusiasmo dos funcionrios em colaborar nos processos de mudana tem sido quase nulo. As mudanas ainda foram dificultadas porque s havia poucas oportunidades de participao.
For this reason, the enthusiasm of employees to collaborate in the process of change has been almost nil. The changes also were hampered because there was only limited opportunities for participation. On the other hand, there is no doubt that just the em-
Entretanto, no h dvida de que justamente o funcionrio ser, por diversas razes, de suma importncia para a atuao da administrao. Se considerarmos que as demandas relativas comunicao tanto no processo interno de gesto quanto nos contatos externos esto aumentando na mesma velocidade que as competncias interculturais e lingusticas devido globalizao das relaes comerciais e administrativas, e se lembrarmos que as tarefas, estruturas e funes do setor pblico na Alemanha continuaro mudando, diferenciando-se e multiplicando-se significativamente, no poderemos mais continuar ignorando a importncia da formao profissional para as profisses administrativas de nvel superior. Mas se concordarmos que economizaremos a partir da capacitao, a reconstruo do ensino na rea da qualificao profissional para executivos ter de tornar-se o objetivo principal da poltica administrativa. A nova classe de executivos dever ter uma ideia de como a prpria sociedade e o prprio pas devero ser no futuro, dever ser capaz de desenvolver uma viso de como o Estado e a sociedade devero ser dentro de 20 ou 30 anos, e dever dispor da habilidade para o dilogo intercultural em face do intercmbio internacional. Por fim, a nova classe de executivos no dever se ver como uma elite impregnada de elementos de seu prprio pas, mas como um grupo que divide e respeita valores culturais. O resultado geral da pesquisa insatisfatrio. O estado das administraes na Alemanha deixa a desejar. A realidade quanto situao atual da modernizao das administraes alems provavelmente se encontra como normalmente o caso entre a continuidade e a transformao. Um posicionamento em relao a essa questo depende sempre do respectivo ponto de vista. De todo modo cabe afirmar que ainda temos muito pela frente. Por essa razo, a administrao sempre tem sido e continuar a ser no futuro: um projeto.
ployee shall be, for various reasons, very important for the performance of management. When we consider that the demands regarding the communication process both internal management and in relation to the external contacts are increasing as fast as the intercultural and language skills due to the globalization of trade and administration, and remember that the tasks, structures and functions of the public sector in Germany will continue to change, significantly differentiating and multiplying, so we have to stop ignoring the importance of continuing vocational training for high-level administrative jobs. But if we agree that we will save from training, reconstruction of education in the area of professional training for executives must become the main purpose of administrative policy. The new breed of executives should have an idea of how society itself and the country itself should be in the future, it should be able to develop a vision of how the state and society should be within twenty or thirty years, and she should have the ability to intercultural dialogue in the face of international exchange. Finally, the new class of executives should not be construed as an elite imbued with elements of their own country, but as a group that shares and respects cultural values. The result of the research is unsatisfactory. The state government in Germany is less than ideal. The reality of the current status of the modernization of the German government is probably - as usually does - between continuity and change. A position in relation to this question always depends on their point of view. Anyway it is said, we still have far to go. For this reason, the administration has always been and will continue in the future: a project.
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O GERENCIAMENTO dEMOCRTICO dA GESTO PbLICA THE dEMOCRATIC MANAGEMENT OF PUbLIC MANAGEMENT

KATRIN MLTGEN PROFESSORA DA ESCOLA SUPERIOR DE ADMINISTRAO PBLICA DE NORDRHEIN-WESTFALEN PROFESSOR AT FACHHOCHSCHULE FR FFENTLICHE VERWALTUNG (FHV) NORDRHEIN-WESTFALEN
sabido que esto em curso na Alemanha vrios processos de modernizao. Ainda assim, defendo a opinio de que o nvel municipal tem uma grande importncia, justamente pelo fato de estar mais prximo do cidado. Por essa razo eu gostaria de abordar as medidas que tm sido tomadas na Alemanha em relao modernizao da gesto municipal, aprofundando quatro itens. Primeiramente, importante citar alguns conceitos bsicos. Em seguida, explicar os motivos que impulsionaram a modernizao da gesto municipal, e descrever o desenvolvimento do processo de modernizao ocorrido no pas. Na verdade, os processos de modernizao sempre existiram. Porm ocorreu uma mudana muito grande nos anos 1980, quando surgiu um novo princpio norteador, o chamado New Public Management, pelo qual a grande maioria dos municpios alemes se tem orientado. Finalmente, preciso analisar o princpio norteador da governana. Um dos conceitos fundamentais para fins comparativos entre o Brasil e a Alemanha o fato de a Alemanha tambm ser um Estado federativo, com 16 estados (Bundeslnder) e 11.495 municpios, nmero bem maior do que no Brasil. Na Alemanha, portanto, tambm existe o princpio federativo entre o governo federal, os governos dos estados e os governos municipais, os quais assumem cada um uma responsabilidade especfica.
It is known that in Germany a series of streamlining processes are ongoing at this time. Nevertheless, I am of the opinion that the municipal level is of great significance, because it is closer to the regular citizen. Due to this reason, my approach will discuss the measures that are being taken in Germany in regards to the streamlining of municipal management procedures, and I shall delve into four items. First of all, it would be important to mention some basic concepts, and then to explain the reasons that fomented the streamlining of municipal management techniques and to describe the development of the streamlining process that took place within the Country. In truth, streamlining processes have always existed. In the 80s, however, a momentous change took place, at which time a new guiding principle (the so-called New Public Management) appeared, by which the majority of German municipalities have been guiding themselves. Finally, we need to analyze the underlying guiding principle behind governance. One of the fundamental concepts used to make a comparison between Brazil and Germany is the fact that Germany is a federate state as well, consisting of sixteen states (Bundeslnder) and of 11,495 municipalities (significantly more than in Brazil). In Germany, therefore, there is the federative principle between the federal government, the state governments and the local governments, which, each on their own account, undertake very specific responsibilities.
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Existe um fato muito importante previsto em nossa Constituio, que o direito dos municpios autogesto. Os municpios, as cidades, comunidades ou comarcas tm o direito constitucional de regulamentar de forma autnoma, e em concordncia com a Lei, todas as questes da administrao local. E essa autogesto das comunidades ou dos municpios tambm abrange a autorresponsabilidade financeira. A Constituio, elaborada no ano de 1949, optou propositalmente por um modelo oposto ao modelo do governo centralizado do Terceiro Reich, atribuindo assim mais autonomia e responsabilidade aos nveis governamentais municipais. Considerando o setor municipal, essa autorresponsabilidade se torna muito importante tambm na questo da modernizao. Vejamos agora o incio da modernizao da gesto municipal. Imaginemos que estamos nos anos 1980, quando a democracia comeou a se concretizar. Houve muitos fatores que impulsionaram a modernizao da gesto municipal depois de um longo perodo de continuidade. Um deles foi a crescente demanda dos cidados em relao qualidade do servio prestado pela administrao, visto que no mbito do setor privado a prestao de servios tambm passou a conquistar um espao muito mais significativo. No setor bancrio, por exemplo, o cidado j era tratado como cliente, enquanto na administrao pblica o cidado ainda era tratado como solicitante. Alm disso, ocorreu a crise dos cofres pblicos, cujos recursos para a gesto pblica ficaram cada vez mais escassos devido ampliao da abrangncia das tarefas. Por conta do compromisso poltico do governo federal e dos governos estaduais, e dos financiamentos realizados por esses governos para impulsionar a modernizao, a autogesto dos municpios sofreu uma atenuao, que se deveu intensificao do grau de influncia dos governos na ampliao das tarefas em nvel local. Alm disso, nos anos 1960 e 1970 (e novamente nos anos 1980) aconteceu uma ampla Reforma da Constituio em nvel nacional. As Constituies Municipais at ento eram muito dependentes das potncias ocupantes da Alemanha. Mas finalmente alcanou-se uma maior uniformidade, o que tornou possvel introduzir elementos democrticos de influncia direta. De modo geral nossa organizao altamente representativa, ou seja, temos uma democracia representativa.
A very important fact has been envisaged in our constitution, which is the right that the municipalities have to manage themselves. Municipalities, cities, communities or judicial districts have been granted the constitutional right to regulate all matters pertaining to local management themselves, and to do so in an autonomous fashion in pursuance to the Law. This self-management aspect pertaining to the communities and to the municipalities also comprises financial responsibility. The 1949 Constitution deliberately chose a model that was antagonistic to the model of centralized government which had been adopted by the Third Reich, thus assigning greater autonomy and responsibility to the municipalities. If one considers the municipal sector, this self-responsibility has become very important regarding streamlining as well. We should keep in mind that the start of the streamlining process lies within the municipal sphere. Let us suppose that we are in the 80s, when democracy started to become real. Many factors arose that boosted the streamlining of municipal management after a long period of continuity. One of them was the ever increasing demand by the citizens regarding the quality of the services being provided by the administration, considering that within the context of the private sector, the providing of services also won over a much more significant space. Regarding the banking sector, for instance, the citizen was already being treated as a client, while in public administration the citizen was still being treated as a supplicant. On top of that, a crisis arose regarding public coffers, where the funds available to public management were getting ever scarcer due to the expansion of the tasks. On account of the political commitment by the Federal government and by the state governments, and on account of the financing granted by these governments to foment streamlining, the self-management task of the municipalities underwent a softening, which was due to the greater intensity of the level of influence that these governments exercised in task expansion on the local level. Moreover, during the 60s and 70s (and again during the 80s) the Constitution went through a wide reform on a national level. Up until that time, the local Constitutions were very much dependent on Germanys Occupying Powers. Finally, a greater uniformity was achieved by which means it became possible to introduce democratic elements that had a direct sway. Generally speaking, the point that we wish to make is highly representative, i.e., we have a representative democracy.
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Paralelamente a tudo isso, ocorreu uma grande internacionalizao e globalizao, o que nos forou a nos orientarmos na direo alm fronteiras, no somente as europeias, como tambm as dos Estados Unidos. As correntes neoliberais haviam tomado a dianteira, e os outros pases j estavam colhendo os frutos das reformas, que incluam a rea da gesto municipal. Em outras palavras, muitas medidas haviam sido tomadas no sentido de uma orientao para o cliente. Na Alemanha, a Fundao Bertelsmann promoveu um grande concurso, no qual vrios municpios foram premiados. Alguns exemplos seriam as cidades de Christchurch, Phoeni (Inglaterra) ou Tilburg (Holanda). Ao mesmo tempo havia ficado bem claro que ns estvamos altamente suscetveis a uma grande concorrncia, no somente europeia como tambm internacional. As comunidades no concorriam apenas entre os habitantes, mas tambm entre si. Fomos obrigados a enxergar alm das nossas comunidades, e a observar o que as outras comunidades na Alemanha e na Europa estavam fazendo. A Conferncia do Meio Ambiente, no Rio, as conferncias realizadas em outras reas e o processo da Agenda 21 nos mostraram o quo globalizada ficou a dependncia das comunidades entre si, e o quanto a Agenda 21 nos incitou a cooperar. Finalmente, importante mencionar as novas tecnologias que forneceram gesto pblica possibilidades e ferramentas para a facilitao das tarefas administrativas. Existe na Alemanha uma associao chamada Repartio Pblica da Administrao Municipal (Kommunale Gemeinschaftsstelle fr Verwaltungsmanagement KGSt). O KGSt se dedica organizao da gesto pblica em nvel nacional. Em 1993, o KGSt havia alertado para o fato de a autogesto municipal estar em risco. Havia ficado bem claro que uma parte das exigncias impostas aos governos municipais havia sido estabelecida pelo entorno. E por essa razo cito um dos trechos mencionados no relatrio do KGSt: Atualmente surge a impresso de que a autogesto municipal no est mais dando conta das exigncias de seu entorno. Em primeiro lugar, isso se refere ao desempenho financeiro. A crise atual no comparvel com a crise ocorrida h 10 anos, e por essa razo a presso por mudanas muito maior. No somente a capacidade de atuao no mbito financeiro dos municpios, como tambm o relacionamento com os cidados chegou a um ponto que requer uma drstica mudana
In parallel to it, a great deal of internationalization and globalization also occurred, which forced us to look beyond our borders, not only European borders but also to look toward the US. Neoliberal currents came into the fore while, at the same time, other countries were already beginning to enjoy the fruit of the reforms, which included the municipal management area. In other words, many measures had been taken to get management to become client-oriented. In Germany, the Bertelsmann Foundation promoted a big contest as a result of which several municipalities were awarded prizes. Some examples of this would be the cities of Christchurch, Phoenix (England) or Tilburg (Holland). At the same time, it had become quite clear that we were highly susceptible to a great deal of competition, not only in Europe but on an international level as well. Communities would not compete only in the numbers of their inhabitants, but also amongst themselves. We were compelled to look beyond our communities and look at what other communities were doing not only in Germany, but in Europe as well. The Conference on the Environment, in Rio, triggered conferences in other areas as well and the process pertaining to Agenda 21 showed us just how globalized the dependency had become between the different communities and how much Agenda 21 pushed us to cooperate with one another. Finally, it is important to mention the new Technologies that provided public management with the possibilities and the tools to help them with administrative tasks. There is an association in Germany called the Public Department of Municipal Administration (Kommunale Gemeinschaftsstelle fr Verwaltungsmanagement KGSt). This KGSt is strongly dedicated to organizing public management on a national scale. At the start of the 90s, or more precisely in 1993, KGSt had issued a warning that municipal self-management was at risk. It had become quite manifest that part of the demands imposed on the local governments had been established by the surroundings, and it is due to this reason that I mention one of the excerpts mentioned in the report issued by the KGSt: One has the feeling nowadays that municipal self-management is no longer able to handle the requirements of its own surroundings. In the first place, this refers to financial performance. The current crisis is not comparable with the crisis that took place 10 years ago, and, due to this reason, the
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de rumo. Precisamos conseguir reformar a gesto municipal de forma a podermos reagir s crises com muito mais flexibilidade do que nos seria possvel dentro da estrutura existente. [Relatrio KGSt 05/1993]. Em relao rea estratgica, a atuao poltico-municipal carecia de uma orientao definida por objetivos de desenvolvimento de mdio prazo. Isso se aplicava tanto Cmara Municipal quanto prpria rea administrativa. Na rea de gesto tambm se pde constatar um dficit, que consistia na falta de um monitoramento da organizao orientado por objetivos definidos. Em relao rea da atratividade, cabe dizer que a administrao pblica como empregadora carecia de atrativos. Quanto legitimidade, at os anos 1990 a gesto pblica carecia de elementos democrticos com influncia direta. Os cidados no se sentiam respeitados e levados a srio porque eram tratados como solicitantes. Ao mesmo tempo, aquilo que chamamos de liderana executiva fez com que a gesto pblica obtivesse mais poder do que a rea poltica, ou seja, os parlamentos municipais, e isso tambm foi considerado um grande problema. Na Alemanha, at os anos 1980, dominava a organizao administrativa burocrtica. Menciono duas citaes para destacar o quo burocrtica era nossa organizao administrativa: A burocracia a arte de fazer o possvel impossvel. A administrao burocrtica um sistema de irresponsabilidade organizada. No preciso detalhar o que significa a burocracia, que um fenmeno global, existente tanto na Alemanha como no Brasil. Na Alemanha, portanto, a burocracia havia sido o nico princpio norteador at os anos 1980. At ento o controle e o gerenciamento democrtico da gesto pblica haviam constitudo seu ponto central, ou seja, os conceitos normativos haviam sido principalmente a democracia e o estado de direito e essa uma questo fundamental, j que a ditadura nazista havia contribudo para que se desse prioridade justamente a esses dois itens. A atuao administrativa era fortemente influenciada pelo direito, pela hierarquia, pelas regras formais, mas tambm pela compatibilidade dos autos e pela comunicao escrita. A
pressure for change is much greater. Not only the financial capacity of the municipalities to act, but also their relationship with their citizens got to a point that required a drastic course change. It is necessary for us to reformulate municipal management to such an extent which would allow us to react to crises with much more flexibility than we have within the existing structure. [KGSt Report 05/1993]. In regards to the strategic area, the political-municipal action required orientation that would be defined by medium term development objectives. This applied to both the Aldermens Council and the administrative area itself. Within the management area, a deficit was determined to exist as well, which was caused by the inexistence of monitoring on the organization which would be guided by well defined objectives. In regards to item 3 (the area having to do with attractiveness) one should say that public administration lacked attractions as an employer. As to the last item that of legitimacy until the 90s public management lacked democratic elements that could have a direct sway. Citizens did not feel that they were being respected or that they were being taken seriously, because they were being treated as supplicants. At the same time, what we call executive leadership caused public management to get more power than the political area, i.e., the municipal parliaments, and this was also being considered to be a huge problem. Until the 80s, a bureaucratic administrative organization used to dominate in Germany. I mention two quotes to highlight just how bureaucratic our administrative organization used to be: Bureaucracy is the art of rendering impossible what is possible. Bureaucratic administration is a system of organized irresponsibility. There is no need to go into detail to express what bureaucracy means that it is a global phenomenon that exists in both Germany and Brazil, and that in Germany, bureaucracy had been the only guiding principle until the 80s. Until that time, both the control and the democratic management of the res publica had found their pivotal point, that is, normative concepts had based themselves mostly on democracy and on a state of law, this being a fundamental question, since the Nazi dictatorship had caused priority to have been
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orientao pelo Modelo Hierrquico I, o modelo burocrtico, havia sido muito intensa, e a composio desse sistema era majoritariamente jurdica. A disciplina poltico-administrativa e aqui estamos falando do monoplio jurdico dentro da gesto pblica era altamente influenciada por conceitos jurdicos. Todos os processos de gerenciamento eram realizados por advogados. Deu-se ento incio mudana do princpio norteador, para incluir tambm profissionais de outras reas que no a jurdica. Vale enfatizar que a legitimidade da atuao administrativa continuou sendo importante, e que nessa questo a Alemanha ocupa uma posio de vanguarda, mas mesmo assim houve uma mudana, que consistiu no distanciamento da organizao administrativa burocrtica e na adoo do chamado New Public Management. Termo utilizado a nvel internacional. O princpio norteador do New Public Management, que comeou a se consolidar no incio dos anos 1990 em nvel municipal, passando depois para os nveis estadual e federal, referia-se modelagem e ao direcionamento do setor pblico. Na Alemanha, o conceito de gesto empresarial era entendido como antagnico ao de gesto pblica. A mudana comeou quando o cidado deixou de ser tratado como solicitante, e surgiu o desejo do setor pblico de ser visto como empresa prestadora de servios. Comeou-se a dar mais importncia s questes da eficincia e da qualidade da atuao administrativa. Por fim, tudo passou a ser denominado Management, sendo que o prprio Management comeou a ser visto como um remdio universal. Nesse contexto vale mencionar alguns exemplos: Personalmanagement, Kontraktmanagement, Finanzmanagement, Qualittsmanagement. Transferimos tudo isso da rea da gesto empresarial, pensando que seria a soluo universal; mais tarde constatou-se que esse foi um grande equvoco. Em geral pode-se afirmar que os conceitos da administrao empresarial foram adotados como disciplina norteadora para o processo da reforma, e aos poucos o modelo burocrtico foi sendo substitudo. A imagem apresentada demonstra uma viso simplificada do New Public Management, que teria sido formulado a partir de um caos, e cujas partes integrantes estariam fortemente relacionadas aos conceitos da gesto empresarial, ou seja:
given precisely to these two items. The administrative course of action was being strongly influenced not only by law, by hierarchy and by formal rules but also by the compatibility of records and by written communications. The guidance provided by Hierarchical Model I (a bureaucratic model) had been very intense, and the elaboration of this system had been mostly modeled on law. The political-administrative discipline and here we are speaking of a legal monopoly imbedded into public management was being highly influenced by legal concepts. All management processes were being handled by attorneys. Changes started being made to the guiding principle, to include professionals from other areas as well. It would be worth stressing that the legitimacy of the administrative course of action was still important and, in this regard, Germany occupies a vanguard position. Nevertheless, changes took place, causing a drift away from a bureaucratic administrative organization, and which ended up with the adoption of the so-called New Public Management (NPM), which is a term used worldwide. The guiding principle of this New Public Management started getting consolidated at the start of the 90s at municipal levels, migrating afterwards to state and federal levels, which meant the modeling and the direction of the public sector, and, in Germany, this corporate administrative concept was understood as being antagonistic to public management. This meant that citizens were no longer being treated as supplicants, and the idea was to get public administration to be seen as a service company. More importance started being given to efficiency and to the quality of the services provided by public administration. In the end, everything started being called Management, and management itself started to be seen as a public remedy. It is worth mentioning some examples within this context, such as Personalmanagement, Kontraktmanagement, Finanzmanagement, Qualittsmanagement [Translators Note: i.e., People and Contract Management, Financial Management, Quality Management.] We transferred all of the above to the corporate management area, thinking that this would be a universal solution. It was determined later on that it had all been a big mistake. Generally speaking, one could state that the concepts pertaining to corporate management had been adopted as a guiding discipline for the reformation process, and gradually the bureaucratic model started being replaced.
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mercados, clientes, objetivos, orientao para o cidado/ cliente e aumento da produtividade. No cabealho est escrito: controle estratgico atravs da poltica e da gesto. Isso representa um grande problema. Ao transferirmos esse esquema empresarial para a rea da gesto pblica, o fazemos sem considerar que esta ltima tambm inclui uma parte poltica e que, mesmo que ela tenha orientado a gesto juridicamente, continua sendo um parlamento municipal, cujas racionalidades so outras. O conselho municipal de uma cidade no comparvel com o conselho de uma empresa. Os modelos empresariais no podem ser unilateralmente transferidos para a gesto judiciria; tampouco podem ser transferidos para a gesto municipal. Chamamos a ateno para os pontos crticos em relao ao New Public Management, e para os problemas que surgem a partir da interao entre a poltica e a gesto, principalmente no que diz respeito orientao unilateral por componentes da rea empresarial, com suas vises e perspectivas. As particularidades da gesto poltica no foram suficientemente consideradas, visto que houve demasiada concentrao na administrao interna, o que resultou em reformas internas, sem que fossem avaliadas as consequncias para a interao entre a gesto pblica e o seu entorno. Desde o final da dcada de 1990, incio dos anos 2000, o conceito de governana tem conquistado mais espao. Nesse contexto, apresento duas citaes. Governana uma forma auto-organizada e independente de coordenao e cooperao em redes intraorganizacionais, que podem ser compostas de organizaes polticas e administrativas, associaes, empresas e instituies no governamentais com ou sem a participao estatal. Governana corresponde ideia clssica de controle poltico. Existe, por exemplo, o conselho que elabora os conceitos, os quais por sua vez so concretizados pela gesto. Comparando com o New Public Management, a diretoria de uma prefeitura determina as metas, e a organizao atua conforme as metas estabelecidas. Esse modelo provou ser pouco realstico, e ao mesmo tempo constatou-se que a cidadania em torno de uma prefeitura oferece enormes potenciais que deveriam ser aproveitados. A caracterstica fundamental a integrao ativa de todos os atores na modelagem da comunidade local. O quadro no Brasil seria bem semelhante ao alemo.
The image that has been presented so far evinces a simplified view of the New Public Management, which had been elaborated on top of a chaos, where the integral parts are strongly related to the concepts of corporate management, i.e., markets, clients, objectives, guidance to citizen/client and an increase in productivity. The heading could contain the following words: Strategic control through politics and through management. This represents a huge problem. When we transfer this corporate scheme to the public management area, we do so without taking into account that this latter area is also made-up of a political portion, and, even though it has not guided the matter from a legal point of view, it still continues to be a municipal council, the rationalities whereof are different. The municipal council of a given city may not be compared with that of the Board of Directors of a company. Corporate models may neither be single-handedly transferred to attorneys nor may they be transferred to the municipal sector, i.e., to municipal management. Here we should stress the critical aspects as compared with New Public Management and the problems that may crop up from the interaction between politics and management, especially in regards to the single-handed guidance by corporate area components, their visions and perspectives. The particularities pertaining to political management were not taken sufficiently into account, since there has been much too much concentration on internal administration, which resulted into internal reforms without evaluating the consequences arising from the interaction between public management and its surroundings. As of the end of the 90s and the start of the years 2000, the concept of governance has been winning more elbow room. I wish to present two quotes within this context: Governance is a self-organized and independent form of coordination and cooperation in intra-organizational networks which may be made-up of political and administrative organizations, of associations, of companies and non-government organizations with or without the participation of the state. Governance corresponds to the classical idea of political control. There is, for instance, a Council, which elaborates the concepts which, in turn, are made real by management. Compared with the New Public Management the executive board of a municipality determines the goals and the organization proceeds according to the goals that have been established. This model did not prove to be very realistic, and at the same time it was determined that the citizens that live within a given munici-
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Nesse contexto, h que se observar a coordenao de uma administrao, a qual deve determinar que tipo de organizao ou instituio poderia cooperar, em que rea, para que as metas do municpio possam ser alcanadas em cooperao mtua. Paralelamente, os princpios da democracia representativa so complementados com novas formas de democracia cooperativa. Os cdigos municipais foram parcialmente alterados, sendo que em Nordrhein Westfalen (NRW), nos anos 1990, houve a introduo do plebiscito, possibilitando a participao ativa dos cidados nos processos decisrios, como tambm em formas de cooperao mais simples. Seguem alguns exemplos de conferncias futuras, como os processos da Agenda 21; a possibilidade de impulsionar a inovao com a ajuda de fundaes; a introduo de parlamentos da infncia e da juventude, com o objetivo de incentivar os jovens a praticarem a cidadania; novas possibilidades para a participao dos cidados em processos de planejamento, como por exemplo o planejamento oramentrio; a formao de fruns especficos e de mesas redondas sobre temas especficos. Deve-se avaliar com muito cuidado quais os atores a serem utilizados para cada finalidade, e quais os mtodos a serem adotados para incorpor-los. A questo determinar quem deve aumentar as esferas legtimas da atuao administrativa, que cidados devemos consultar em que momento, onde devemos definir prioridades, que tipo de prioridades financeiras devemos estabelecer. Isso tudo aconteceu em Colnia, onde, assim como em Porto Alegre, existe um oramento participativo, que um oramento projetado pelos prprios cidados. Esse procedimento consiste na participao dos cidados durante a fase do planejamento oramentrio. Essa incluso dos cidados em processos decisrios visa ao aumento da transparncia em relao s prioridades financeiras, intensificao do dilogo entre os cidados, poltica e administrao, e orientao da gesto municipal por parte dos cidados, por exemplo em casos de escassez de recursos, quando h necessidade de estabelecer prioridades financeiras. Para os padres alemes, a cidade de Colnia bastante grande, com 1 milho de habitantes o que muito pouco em comparao com o Rio de Janeiro , mas mesmo assim decidiu-se estabelecer determinados pontos chave com a ajuda do
pality offer tremendous potential that should be taken advantage of. The fundamental characteristic here is to be able to actively integrate all the actors used in the modeling of the local community. The Brazilian picture would be very similar to the German one. One needs to observe within this context what kind of coordination exists within a given administration, which ought to determine what type of organization or institution could cooperate and within which area, so that the goals that were set forth by the municipality may be achieved by mutual cooperation. At the same time, the principles pertaining to representative democracy are complemented by new forms of cooperative democracy. Municipal codes have been partially changed, and in the 90s, in Nordrhein Westfalen (NRW), a plebiscite was held which allowed the active participation of the citizens in decisory processes as well as in simpler forms of cooperation. Some examples have been given for future conferences, such as, for instance, the processes pertaining to Agenda 21; the possibility of fomenting innovation with the help of foundations; the introduction of childrens and young peoples parliaments, the objective whereof would be to incentivize young people to practice civil rights; to provide new possibilities for the participation of citizens in planning processes, such as, for instance, budget planning; the formation of specific forums and of round tables to deal with specific themes. One should take a great deal of care when evaluating which are the actors that need to be used and for what ends, and what are the methods that need to be adopted to incorporate them. The question is to determine who should increase the legitimate spheres of administrative action, who are the citizens that need to be consulted, when and where we should define our priorities, and what type of financial priorities ought to be established. This happened in Cologne where, as well as in Porto Alegre, there is a participative budget, which is a budget that has been established by the citizens themselves. This procedure consists in the participation of the citizens during the phase of budget planning. Said inclusion of citizens in decisory processes is intended to increase transparency in regards to financial priorities, the increase of dialogues between the citizens, the politicians and the administration, and the providing of guidelines to the public managers by the citizens, in case of scarcity of resources, for instance, when a need arises to establish financial priorities. By German standards, the city of Cologne is quite large (1 million people) which is very few when compared with Rio de
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knowhow do cidado. As reas trabalhadas dessa forma foram principalmente a rea de educao e a rea ambiental. E as possibilidades de participao do cidado foram limitadas a essas reas. O processo participativo de Colnia consistiu em 3 fases: a primeira fase foi informativa, com a realizao de eventos informativos, onde os cidados puderam se informar sobre o que vinha acontecendo. A internet tambm foi utilizada para a divulgao das informaes, e a prefeitura contou com um espao para atender os cidados. A segunda fase foi a fase de consultas, projetada para durar apenas um ms. Esse um fator muito importante, porque, se o perodo for muito longo, a disposio das pessoas de participar vai diminuindo com o tempo. A motivao para a participao aconteceu com a ajuda de reunies de cidados, e por meio da internet. A terceira fase foi de prestao de contas, durante a qual os representantes polticos, apresentaram um relatrio sobre as sugestes aceitas, as sugestes concretizadas, e os pontos centrais. O termo governana universalmente utilizado e tambm pode ser aplicado s reas onde adotado. A public governance se refere ao mbito da gesto pblica; a good governance o que estabelece o esquema normativo; a global governance est relacionada s formas de interao e gesto no contexto internacional, principalmente entre governos, empresas, instituies no governamentais; a corporate governance tambm se refere a uma rea empresarial entre conselho e empresa; a local governance se parece com a public governance, mas no muito utilizada; e, por ltimo, a multilevel governance se refere aos processos de coordenao e monitoramento de diversas reas.
Janeiro, but even so, it was decided to set up certain key points with the help of the citizens know-how. The areas worked on within this context were principally education and the environment. The possibilities that citizens had to participate were limited to these areas. The Cologne participative process consisted of three phases: The first phase was informative, whereby informative events were held and where citizens were able to be informed about what had been happening in those areas. Internet was also used to disclose information, and City Hall had a space of its own to cater for its citizens. The second phase was a consulting phase, which was scheduled to last only one month. We are talking about a very important matter here, because if the period is too long, the willingness of people to participate diminishes with time. The motivation to participate came about with the help of citizens meetings, via the Internet. The third phase was one of account rendering, during which the political representatives presented a report about the suggestions that had been accepted, the suggestions that had been turned into reality, and their central points. The name governance is universally used, and it may also be applied to the areas in which it has been adopted. Public governance refers to the context of public management; and good governance is what the normative scheme has established. Global governance is associated with the manners of interaction and management in an international context, mainly between governments, companies, non governmental institutions, and corporate governance also refers to a corporate area established between the council and the company. Local governance is similar to public governance, although it is not very much used. Lastly, there is multi-level governance, which refers to the coordination and monitoring processes for several areas.
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Resumidamente, a gesto burocrtica que prevaleceu entre 1950 e 1980, com as administraes burocrticas derivadas da legitimidade da autoridade, continua sendo fator importante nos dias de hoje, ou seja, no se trata aqui de fases totalmente substitudas umas pelas outras. O New Public Management substituiu o princpio norteador anterior, e desde o incio dos anos 2000 foi introduzido o princpio da governana, sendo que esse processo ainda est sendo desenvolvido em vrias comunidades. Esse princpio norteador, no entanto, est sendo crescentemente aceito. E essa aceitao depende de vrios fatores, como por exemplo da maioridade poltica no conselho da cidade. importante entender a governana como um complemento do New Public Management, e no como um contraste, especialmente diante da questo da crise financeira dos municpios.
In sum, the bureaucratic administration that was in effect from 1950 to 1980, together with the bureaucratic administrations derived from the legitimacy of authority, have continued to be an important factor nowadays, that is, we are not talking here about phases that were totally replaced by others. Afterwards, New Public Management replaced the previous guiding principle, and ever since the start of the years 2000, when the principle of governance was introduced. This guiding principle, however, is being increasingly accepted, this acceptance depending on several factors, such as, for instance, the political coming of age within the city council. It is important to understand governance as being a complement to the New Public Management and not a contrast, especially in face of the financial crisis which the municipalities are facing.
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A GESTO ESTRATGICA E A OTIMIZAO dE PROCESSOS STRATEGIC MANAGEMENT ANd PROCESS OPTIMIZATION

MICHAEL BETRAMS PRESIDENTE DO TRIBUNAL CONSTITUCIONAL DE NORDRHEIN-WESTFALEN PRESIDENT OF THE CONSTITUTIONAL COURT OF NORDHEIN-WESTFALEN
Em abril de 1997 o ento presidente da Repblica Federal da Alemanha, Roman Herzog, proferiu um discurso de fundamental importncia. O teor do discurso foi o seguinte: algo h de acontecer. A perda da dinmica econmica e o retesamento da sociedade dela advindo fazem com que o nosso pas tenha que sofrer uma sacudida. O esprito inovador, de acordo com Herzog, comea a brotar na cabea atravs da adoo de novas atitudes perante novas tcnicas, novas formas de trabalho e formao profissional. Enfim, atravs de nossa atitude perante as mudanas em si. Mas mesmo antes do discurso de Herzog, em meados dos anos 1990, alguns crculos inovadores da Justia j se tinham conscientizado da necessidade de mudar, a fim de poder enfrentar os desafios do futuro. Impulsionados pela dinmica daqueles crculos, as justias federal e estadual tambm iniciaram um processo de renovao e modernizao com o objetivo de garantir e otimizar o cumprimento da ordem jurdica dentro do contexto das condies existentes no incio do sculo XXI. Esse processo foi acompanhado de um debate intenso e polmico no nvel da economia, da ordem profissional e do jornalismo. O foco central desses debates era, entre outras, a questo de saber se, e em que medida, os esquemas desenvolvidos em relao modernizao da administrao federal poderiam ser transmitidos para a rea da Terceira Potncia, ou seja, do Judicirio. Quanto a essa questo, as opinies diferiam e diferem amplamente.
In April of 1997, Roman Herzog, the then President of the Federal Republic of Germany, gave a speech of fundamental importance. The gist of his speech was as follows: Something must happen. The loss of economic dynamics and the tension in society resulting from it creates the need for our country to spring into action. According to Herzog, the innovating spirit starts to sprout in the head through the adoption of new attitudes vis--vis new techniques, new forms of work and through professional training or, in short, through our attitude in face of the changes themselves. But even before Mr. Herzog had made his speech, in the midst of the 1990s, some innovating Law circles had already become aware of the need to change in order to be able to face the challenges of the future. Boosted by the dynamics of those circles, the Federal and the State Courts also started a process of renewal and streamlining, with the objective to assure and to optimize the accomplishment of the new legal order within the context of the conditions existing at the start of the 21st Century. This process was followed by an intense and polemic debate at the level of the economy, of professional order and of journalism. The central focus of these debates was (among others) the question if, and to what extent, the schemes being developed regarding the streamlining of the federal administration could be conveyed to the Third Power area, i.e., to its area of jurisdiction. As to this matter, opinions differed and differ quite extensively.
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Reformistas radicais ignoraram a independncia dos juzes garantida atravs do Artigo 97 da Lei Orgnica (Constituio da Repblica Federal da Alemanha), assim como as caractersticas especiais da Terceira Potncia dela resultantes. Desenvolveram conceitos de uma Justia moderna, desconsiderando as diferenas elementares entre uma administrao judiciria hierarquicamente estruturada, de um lado, e uma jurisdio independente, der outro, o que acabou resultando em um controle administrativo da Terceira Potncia e, no menos importante, em um controle condicionado por conceitos econmicos. Diante de tais ideias, logo ficou bem claro: os novos modelos de gesto desenvolvidos para a administrao pblica, com base em conhecimentos da administrao empresarial, no so diretamente transferveis para a Justia. A resistncia economia determinada pelo Artigo 97 da Lei Orgnica exclui, por princpio, uma gesto da atividade judicial por meio de outras determinantes que no a Lei. Em outras palavras: a modernizao da Justia somente poder gerar bons resultados quando os limites resultantes da garantia constitucional da independncia judicial forem assegurados. Por essa razo ela ter de ser o ponto de orientao e a meta principal de qualquer inovao. Qualquer proposta de reforma deve ser avaliada de modo a determinar se, por um lado, ela contribui para a efetivao da jurisprudncia e, por outro, compatvel com o princpio da independncia judicial. O desenvolvimento da modernizao at a presente data foi e continua sendo parte de um processo que engloba a Justia em sua totalidade. Deu-se incio a esse desenvolvimento por meio de um Documento de Estratgia elaborado pelo Ministrio da Justia de Nordrhein-Westfalen em estrita e crtica cooperao com o presidente do Tribunal da Justia do estado. Nesse documento exigido, alm de uma simplificao das prescries legais processuais e materiais, um aproveitamento consequente dos recursos internos existentes. Sendo a Justia uma instituio fornecedora de servios do governo de acordo com o Documento de Estratgia ela responsvel pelo desenvolvimento de procedimentos administrativos e mtodos operacionais mais rpidos e eficientes e de um melhor atendimento ao cidado. Com base nesse documento deu-se incio a vrios projetos de modernizao interna em todas as reas da Justia.
Those in favor of radical reforms ignored the independence of the judges which had been assured by Article 97 of the Organic Law (the Constitution of the Federal Republic of Germany), as well as the special characteristics of the Third Power resulting from therein. They developed the concepts of a modern Law, disregarding the elemental differences between a hierarchically structured up Administration based on Law on the one hand, and an independent jurisdiction on the other, which wound up resulting in the administrative control of the Third Power and, not less importantly, in a control conditioned by economic concepts. In face of such ideas, it became quite clear that the new management models, which had been developed on behalf of public administration, and based on the knowledge of corporate management, are not directly transferrable to legal concepts. The resistance to economy determined by Article 97 GG [Translators Note: GG = Grundgesetz Organic Law] excluded right from the start the management of the legal activity by way of other determinants, except when accomplished by way of the Law. In other words, the streamlining of the law may only obtain good results when the limits arising from the constitutional guarantee as to legal independence have been assured. Due to this reason, it shall have to become the guiding light, and the paramount goal for any innovation. Any proposal regarding reform needs to be evaluated in such a fashion as to determine whether, on the one hand, it contributes toward the effectuation of jurisprudence, and if, on the other, it is compatible with the principle of legal independence. The development of the streamlining process down to this date has been, and continues to be, part of an event which comprises Law in its entirety. This development began by way of a Strategy Document which was elaborated by the Ministry of Justice of NordrheinWestfalen in strict and critical cooperation with the President of the Court of Justice of that state. Besides the simplification of the legal, procedural and material simplifications, this document also requires the resulting good usage of any existing internal resources. According to the Strategy Document, since it is an institution engaged in the providing of services to the government, it is responsible for the development of administrative proceedings and of operational methods that are quicker, more efficient, and which provide better services to the citizens. Based on this document, several internal streamlining projects were started encompassing all areas of the Law.
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Um dos projetos mais importantes na rea da jurisdio administrativa foi o de desenvolvimento de um princpio orientador homogneo. Os princpios orientadores geram identidade. Isso implica que devem ser desenvolvidos e elaborados pelas prprias pessoas envolvidas. Nesse sentido, os princpios orientadores formulados no estado de Nordhein-Westfalen so resultado de um processo de intensos debates, realizados com enorme empenho, e que incluram todas as sete cortes administrativas, assim como o Tribunal Administrativo Superior do estado. Esse esquema de princpios orientadores descreve de forma concisa e expressiva as tarefas e metas da jurisdio administrativa. Ele transmite o entendimento da jurisdio administrativa como sendo no somente a Terceira Potncia dentro do governo, mas simultaneamente uma instituio pblica fornecedora de servios. A partir dessa orientao, o princpio orientador estabeleceu as bases para a continuao do desenvolvimento do processo de renovao. Um dos primeiros passos rumo modernizao foi a mudana das estruturas organizacionais. Um gerenciamento eficiente das tarefas judiciais orientado para o fornecimento de servios exige uma organizao adequada dos procedimentos de trabalho. Desse modo foram criadas Unidades de Servio que, alm de realizarem tarefas gerais inerentes a uma secretaria judicial, encarregam-se de prestar servios de assistncia ao juiz. Entre as atribuies das Unidades de Servio esto a preparao de disposies prontas para a assinatura, o atendimento a solicitaes de status, a organizao de documentaes e, tambm, a realizao de trabalhos simples de reproduo. O processo de renovao tambm englobou a rea de desenvolvimento dos recursos humanos do servio judicial. Esse desenvolvimento baseia-se em perfis de funo homogneos, que contm todos os requisitos bsicos inerentes s funes e que tambm so parte integrante das diretrizes de avaliao. As principais caractersticas do perfil bsico ao qual todos os juzes e juzas esto igualmente sujeitos so as competncias profissionais e os conhecimentos tcnicos, as competncias pessoais, as competncias sociais, assim como as competncias gerenciais e de liderana. Um aspecto muito importante do desenvolvimento dos recursos humanos a promoo da mulher e da igualdade de gneros. Tal providncia parte integrante de um plano de promoo da igualdade de gneros tanto para o servio judicial como para o servio no judicial. D-se continuidade
One of the more important projects developed for the administrative jurisdiction area was the development of a homogenous guiding principle. The guiding principles generate identity. This implies that they should be developed and elaborated by the very people involved. Within this context, the main guiding principles decided upon by the state of Nordhein-Westfalen are the ones that resulted from a process of intense debates, held with great determination, and which included all the seven administrative courts as well as the Superior Administrative Court of the state of Nordhein-Westfalen. This scheme, which is made-up of guiding principles, concisely and expressively describes both the tasks and the goals pertaining to administrative jurisdiction. It conveys the understanding of said administrative jurisdiction as not only representing the Third Power within government but a public service providing institution as well. As of these guidelines, the guiding principle established its bases to continue the development of the renewal process. The change of the organizational structures was included among the first steps that need to be taken toward streamlining. The efficient management of legal tasks, oriented toward the providing of services requires an adequate organization of work processes, and as a result, Service Units were created which, besides accomplishing the general tasks inherent to a legal office, also undertook the responsibility to provide services that would assist the judge. Among the attributions of the Service Units, one could list the elaboration of signature-ready provisions, the servicing of status requests, the organization of documentation and also, the carrying out of simple reproduction (copying) services. The renewal process also encompassed the human resources development area for legal services. This development was based on homogenous function profiles which contain all the basic requirements inherent to their functions, which are also an integral part of the evaluation directives. The first characteristics of the basic profile to which all the judges are equally bound are the professional skills and technical know-how, the personal skills, the social skills and the management and leadership skills. Promotion of women and the equality between the genders represent a very important aspect pertaining to the development of human resources. This is an integral part of a gender equality promotion plan, both in regards to legal services as to non legal services. The
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ao desenvolvimento dos planos correspondentes de trs em trs anos. Seus princpios fundamentais so o levantamento e a anlise da estrutura de funcionrios, assim como um diagnstico dos cargos a serem preenchidos e das possveis promoes, ou seja, promoes para um grau e uma faixa de remunerao superiores. A gesto de recursos humanos est diretamente relacionada ao desenvolvimento dos recursos humanos. Cabe a ela desenvolver os potenciais de desempenho individuais e coordenar e monitorar os esforos conjuntos. Ela visa a atuar de forma motivadora, integradora e orientadora. Dentro de um contexto de esquemas modernos de gesto, isso acontece por meio da comunicao e da cooperao. So instrumentos da gesto participativa os encontros peridicos entre a equipe de juzes e os colaboradores no judiciais, assim como as reunies de equipe dos presidentes dos tribunais de justia entre eles e com os presidentes das cmaras dos tribunais. Esses encontros tratam de assuntos relevantes para determinados tribunais ou para a jurisdio em sua totalidade. Parte da modernizao interna e da implementao de uma nova gesto oramentria so tambm as medidas tomadas para a flexibilizao do oramento, e para a gesto descentralizada de recursos. Elas visam a possibilitar um engajamento flexvel, moderno, eficiente e orientado para o cidado, fortalecendo, ao mesmo tempo, a criatividade, a motivao e o esprito inovador dos colaboradores judiciais. Deu-se continuidade reforma e ao desenvolvimento da gesto oramentria no ano oramentrio de 2006, atravs da implementao de um oramento das despesas de pessoal. Uma das metas principais da modernizao interna tem sido, desde o incio, a otimizao das condies tcnicas de trabalho. Em primeiro plano estava a implementao de uma tecnologia da informao (TI) e comunicao eficaz, sem a qual uma Justia moderna no existiria.
continuity of the corresponding plans development is accomplished every three years. Its fundamental principles are the survey and the analysis of the employee structure, as well as a diagnosis of the job positions that need to be filled, and of any possible promotions, that is, promotions to higher remuneration and performance levels. Human Resources management is directly associated with the development of human resources per se. It is up to Human Resources to develop individual performance potentials, and to coordinate and to monitor joint efforts. It aims at acting in a motivating, integrating and guiding way. Within a modern management schemes context, this happens by way of communications and of cooperation. Participative management tools are represented by periodical meetings between the team of judges and non-legal collaborators, as well as by team meetings between the presidents of the Courts of Justice and between the presidents of the Court Chambers. These meetings deal with matters that are relevant to some Courts or which are relevant to the jurisdiction in general. Part of the internal streamlining process and of the implementation of a new budget management system are also measures that are taken to render budgets flexible, and to decentralize resources. They intend to allow a flexible, modern, efficient engagement which is citizen-oriented, strengthening both creativity and motivation at the same time, as well as the innovating spirit of the Courts collaborators. During 2006, continuity was given to the reformation and the development of budget management, which was accomplished by implementing expenses budget for the personnel. From the very start, one of the main goals for internal streamlining has been the optimization of the technical work conditions. The implementation of an efficient information and communication technology was the main concern, without which no modern justice could prevail. Ever since the end of the 90s the administrative juris-
Desde o fim da dcada de 1990, a jurisdio administrativa no estado de Nordhein-Westfalen dispe de uma ampla infraestrutura de TI que engloba todas as reas. Todos os locais de trabalho so interconectados entre si, e dispem de acesso internet e ao correio eletrnico. Alm disso, todos os juzes
diction of the state of Nordhein-Westfalen has made use of a wide IT infrastructure which encompasses all the areas. All work areas are interconnected amongst themselves, and they have access to both Internet and e-mail service. Moreover, all the judges have at home
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dispem, tanto no trabalho quanto em casa, de acesso ao Juris, um dos mais amplos bancos de dados jurdicos da Europa. Com a implementao das transaes jurdicas eletrnicas em 2006, a modernizao passou para outra fase. Desde ento, possvel encaminhar, atravs de uma caixa postal administrativa eletrnica, queixas ou solicitaes por via eletrnica entre diversos tribunais. Esse procedimento oferece vrias vantagens: os documentos so transmitidos rapidamente e de forma segura; seu processamento realizado por via eletrnica; o solicitante ou remetente recebe uma confirmao instantnea de recebimento. A educao continuada de todos os colaboradores do tribunal na rea do processamento de dados eletrnico assegurada por meio de cursos de extenso internos e externos realizados periodicamente. Um dos aspectos mais importantes da modernizao (interna) da Justia foi a otimizao de sua autoapresentao ao pblico. Uma gesto estratgica e transparente das relaes pblicas condio fundamental para a construo da confiana e da aceitao. Uma ferramenta clssica da autoapresentao de um tribunal ao pblico a relao com a mdia. Assegura-se uma boa relao com a mdia atravs da utilizao de mtodos e meios de comunicao atualizados e modernos. Outra ferramenta importante e moderna para a autoapresentao ao pblico so os websites da jurisdio, pois alm de fornecerem informaes gerais, ainda apresentam contedo sobre os tribunais correspondentes. Essas informaes abrangem os esquemas de distribuio de cargos e funes, uma rea destinada mdia, um quadro especfico sobre os servios, assim como formulrios de solicitao online para a solicitao de resolues ou para o cadastramento no mailing list da imprensa. Uma autoapresentao positiva certamente muito importante. Para os envolvidos em um processo judicial, no entanto, o mais importante a impresso pessoal que as pessoas tm ao entrar em contato com um tribunal de justia. Por essa razo realizou-se uma ampla pesquisa com clientes, envolvendo 18.000 advogados e instituies pblicas do estado de Nordhein-Westfalen, que mantm relaes profissionais com os juzos administrativos. A pesquisa levantou a opinio sobre as principais atividades judiciais e apontou as seguintes: a acessibilidade e o comportamento dos colaboradores do tribunal, a inteligibilidade das deliberaes e comunicaes do tribunal, assim como o prazo dos processos.
and in their courtrooms access to a system called Juris, which is one of the largest legal databases in Europe. By way of the implementation of electronic legal transactions in 2006, court streamlining went into a different phase. It has been possible ever since to forward complaints or requests by way of an administrative electronic postal box, which is accessible by several different courts. This procedure offers several advantages: documents are conveyed rapidly and safely; their processing is accomplished by electronic means; the requestor or the sender gets an instant confirmation of receipt. The continued education of all the court collaborators in the area of electronic data processing has been assured by means of both internal and outside extension courses which are held periodically. One of the more important aspects pertaining to the internal streamlining of the Courts was the optimization of its manner of presentation to the public. A strategic and transparent handling of public relations is a sine qua non condition to build-up trust and acceptance. A classic tool for self-introduction of a Court to the public has been its relationship with the media. A good relationship with it may be assured through the use of up to date and modern communications. Another important and modern tool for introduction purposes are the jurisdictional websites which, besides furnishing general information also present contents on their corresponding courts. This information comprises job and job function distribution schemes, an area intended for the media, and a specific tab about services, as well as online request forms to get court decisions or to post them into the press mailing list. A positive self introduction is certainly very important. For those involved in legal proceedings, however, the most important thing is the personal impression that people get when they contact a Court of Law. Due to this reason, a wide-reaching survey was carried out with clients involving 18,000 attorneys and public institutions located in Nordhein-Westfalen who keep a professional relationship with the administrative courts. The survey produced an opinion about the main legal activities involved, i.e., accessibility and the deportment of collaborators in the courtroom, the intelligibility of the resolutions and communications issued by the Court, as well as the proceeding deadlines. Client surveys were complemented with surveys carried
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As pesquisas com os clientes foram complementadas com pesquisas com todos os colaboradores da jurisdio. A pesquisa realizada online teve como objetivo perguntar aos colaboradores sua opinio a respeito de seu mbito e mtodo de trabalho a fim de apontar oportunidades de melhoria. As renovaes expostas anteriormente nas reas da organizao, gesto de recursos humanos, oramento e equipamento tcnico so relativas s condies bsicas sob as quais se executa a administrao da Justia. Elas so a condio necessria, mas no suficiente, para que a administrao da Justia possa cumprir sua tarefa de solucionar litgios administrativos dentro de um prazo adequado. Para tanto, h necessidade de adicionar estratgias que assegurem a garantia de qualidade e eficincia do trabalho judicirio, visto que a qualidade da proteo legal depende substancialmente do momento de sua concesso. S um direito imediato um direito que tem valor este lema, to utilizado na jurisdio alem, baseia-se na enorme importncia do fator temporal para o valor til da atividade judiciria. Com base neste lema, o Documento de Posicionamento estipula as normas que regulam o trabalho administrativo judicirio. O documento parte da premissa de que a jurisprudncia administrativa deve estar voltada, no mbito do Direito e da Justia, para os legtimos interesses e expectativas dos cidados, da economia e da administrao, assegurando a proteo legal individual. O documento circunscreve essa premissa de forma ao mesmo tempo concisa e provocadora, em uma nica frmula: orientao para o cliente. Com isso exige-se, principalmente, que os prazos dos processos sejam mantidos os mais curtos possveis, assegurando sua qualidade. Exige-se, tambm, que os processos sejam desenrolados de forma transparente e justa, e dentro de prazos previsveis para todos os envolvidos. Enfim, fundamental que as decises enfoquem o essencial, que sejam tomadas dentro de um prazo adequado, que sejam realistas e escritas em linguagem simples, clara e concisa, e que sejam inteligveis para todos os envolvidos.
out with all the collaborators within the jurisdiction of the court. The objective of the online survey was to ask the collaborators their opinion about their work, and about their work methods in order to point out opportunities for improvement. The renewals that have been expatiated previously in the areas of organization, human resources management, budget and technical equipment pertain to the basic conditions under which justice is administered. They represent a sine qua non (albeit not sufficient) condition allowing the courts to accomplish their task to judge administrative litigations within an appropriate timeframe. To that effect, there is a need to come up with strategies that assure quality control and legal work efficiency, considering that the quality of legal protection substantially depends on the moment of its granting. Only an immediate right is a valuable right this motto, which is so much used within German jurisdiction, is based on a momentous importance of the temporal factor to aggregate useful value to the legal activity. Based on this theme, the Position Taking Document stipulates the norms that shall govern all legal administrative work. This document starts up with the premise that within the context of law and justice, administrative jurisprudence ought to take into account the legitimate interests and expectations of the citizens, the economy and the administration, assuring legal protection to all individuals. This document circumscribes this premise both in a concise manner and in a provocative one, using only one expression which says it all: guidance to the client. As a result, it is mainly required that the legal deadlines are kept as short as possible, thus assuring their quality. It is also required that all proceedings be developed in a manner that is both transparent and fair, and within calculable timeframes for all those involved. It is also fundamental that decisions focus on the essential, that they are taken within an adequate timeframe, that they are both realistic and that they use simple, clear and concise wording, intelligible to all those involved.
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O atual processo de modernizao da jurisdio administrativa tambm recebeu impulsos essenciais do esquema de trabalho elaborado pelo Grupo Autnomo de Trabalho do debate sobre a qualidade da jurisdio administrativa. A esse grupo de trabalho, que foi criado em cooperao com os conselhos regionais de justia, pertencem juzes e juzas de ambas as instncias. O esquema de trabalho contm uma grande diversidade de ideias para a otimizao da qualidade do trabalho judicirio. A implementao de uma resoluo consensual de litgios atravs da mediao, finalmente, tambm faz parte dos projetos de modernizao. Sob o lema mediar em vez de justiar todos os juzos administrativos oferecem a mediao como mtodo alternativo de resoluo de conflitos. Comecei citando o lendrio discurso de Roman Herzog, que deu impulso ao processo de modernizao. Ao concluir minhas colocaes, gostaria de citar outro presidente da Repblica Federal da Alemanha, Horst Khler. Em seu discurso perante a Associao Federal da Indstria Alem em junho de 2008, ele disse: a participao na concorrncia econmica como uma corrida de bicicleta: quem perde velocidade acaba ficando para trs, e no final tombar. Concordo com esta colocao e penso que, conquanto ela esteja relacionada dinmica dos processos inovadores, ela tambm poderia referir-se Justia. Hoje em dia a Justia, como fornecedora de servios, tambm se encontra em uma situao de concorrncia. No entanto, os tribunais em geral diferem das empresas fornecedoras de servios e orientadas para o cliente, pertencentes economia de livre mercado. A clientela judicial surge sem necessidade de propaganda, e os tribunais tm de atend-la conforme prescrevem o Direito e a Justia. Em outras palavras, os tribunais no so empresas que concorrem com outras empresas, com o objetivo de maximizar o volume de negcios e o lucro. Mas os tribunais, ou seja, os juzes e juzas que neles atuam, no devero fechar os olhos perante o fato de que so entendidos como sendo fornecedores de servios a servio de um estado de direito, e que seu trabalho tambm ser submetido a uma avaliao e comparao. Quem conseguir internalizar essa viso das coisas no poder evitar enxergar o processo (interno) de modernizao da Justia como uma tarefa contnua, que no resistir ao estancamento.
The current streamlining process within the administrative jurisdiction also received essential impulses from the work scheme that was elaborated by the Autonomous Work Group which debated the quality of administrative jurisdiction. Judges of both lower and higher courts were assigned to this work group, which was created in cooperation with the regional legal councils. The above work scheme comprises a great diversity of ideals to optimize the quality of legal work. The implementation of a consensual litigation resolution using mediation is, after all, also part of streamlining processes. Using the motto mediate rather than judge, all administrative courts offer mediation as an alternate method to resolve quandaries. I started out by quoting the legendary speech made by Roman Herzog who was the first one to start up the streamlining process. To conclude my ideas, I would like to quote another President of the German Federal Republic, Mr. Horst Khler. In his speech before the Federal German Industry Association in June, 2008, he said that: the participation in the economic competition process may be compared to a bicycle race: he who loses speed winds up being left behind, and he will fall in the end. I agree with this position, and I think that, even if it is associated to the dynamics of innovative processes, it could also refer to the Courts themselves. Courts nowadays, being the service providers they are, are also competing with one another. However, Courts in general differ from service companies that are clientoriented and which belong to the free market economy. Legal clientele appear without the need of advertising for it, and the Courts need to service it as determined by Law and Justice. In other words, Courts are not companies competing with other companies with the objective to maximize the volume of business and profits. Still, the Courts, i.e., the judges that work in them, cannot close their eyes to the fact that they are construed as being service providers at the service of a State of Law, and that their work will also be evaluated and that a comparison will be made. Whoever is able to internalize this view of things cannot avoid seeing the internal streamlining process of the Courts as being a continuous task, unable to resist to stanching.
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ARTIGO 97 LEI ORGNICA (1) Os juzes so independentes e esto sujeitos apenas Lei. (2) Os juzes com cargo oficial e permanente apenas podero ser demitidos, ou temporariamente afastados de suas funes, ou transferidos para outro local, ou aposentados, antes do trmino de seu mandato e contra sua vontade, por fora de deciso judicial, e por motivos e de formas que estiverem prescritas na lei. A legislao poder determinar limites de idade que, quando forem cumpridos, permitiro que os juzes com cargos vitalcios se aposentem. Em caso de mudanas de estrutura dos juzos ou de seus distritos, os juzes podero ser transferidos para outro tribunal, ou afastados de seus cargos, mas apenas com a garantia de remunerao integral.
ARTICLE 97 ORGANIC LAW OF THE GFR (1) Judges are independent and they are only subject to the Law. (2) Judges assigned to official and permanent positions may only be dismissed (or temporarily removed) from their functions, or transferred to another venue, or retired before the end of their mandates and against their will, on the strength of a judicial decision, and for reasons and in the manner determined by law. The legislation may determine age limits which, when reached, may cause life tenure judges to retire. In case of changes to the structure of the courts or of their districts, judges may be transferred to other venues, or removed from their positions, but only in cases when full pay has been assured to them.
ATRIBUIES DA JURISDIO ADMINISTRATIVA Os juzos administrativos decidem sobre conflitos de interesse pblico que no sejam de natureza constitucional e no estejam sujeitos a outra jurisdio por exemplo jurisdio social ou financeira. Conflitos de interesse pblico so, principalmente, aqueles entre cidados e autoridades administrativas. Nesses conflitos os cidados normalmente so os autores da ao judicial (recorrentes), e as autoridades so os acusados do procedimento litigioso em questo. Depois de uma anlise aprofundada, o juzo administrativo tem o poder ou de anular a deciso da autoridade administrativa, no caso de ela ter violado os direitos do cidado, ou de obrigar a autoridade administrativa a decretar a medida ou autorizao solicitada, no caso injusto de esta no ter sido concedida ao cidado. As reas de direito clssicas de um processo perante um tribunal administrativo so, entre outros, o direito de planejamento e construo, o direito policial, o direito de viao e trnsito, o direito dos impostos, o direito dos cargos pblicos, o direito escolar e universitrio, o direito de imigrao e asilo, assim como o direito do meio ambiente e da proteo ambiental.
PREROGATIVES OF ADMINISTRATIVE JURISDICTION Administrative Courts are to decide about conflicts having to do with public interest, which are not of a constitutional nature, as long as said Courts are not subject to a different jurisdiction, such as for instance, social or financial jurisdiction. Conflicts of public interest are mainly those that arise between citizens and administrative authorities. During these conflicts, citizens are normally the plaintiffs in the judicial proceedings (appellants), and the authorities the defendant of the ongoing litigation. After an in-depth analysis, the administrative judge has the authority to either void the decision proffered by the administrative authority (in the case that said authority violated the rights of the citizen) or to compel the administrative authority to decree the measure or the authority that was requested, in the unfair case when the measure failed to be granted to the citizen. The classical areas of law pertaining to a proceeding in progress before an administrative court are (among others) the right of planning and of construction, the right of the police, the right of traffic, the right pertaining to taxes, the right arising from public office, the school and college right, the right of immigration and asylum, as well as the right pertaining to the environment and to its protection.
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Das trs categorias da jurisdio administrativa (juzos administrativos, tribunal administrativo superior, tribunal administrativo federal), os tribunais administrativos superiores dos estados, sendo tribunais de apelao, so os responsveis pela deciso sobre os recursos contra as sentenas proclamadas pelos juzos administrativos, e sobre os recursos contra outras sentenas referentes jurisdio administrativa. Alm disso, so juzos de primeira instncia no caso de determinados litgios (por exemplo, litgios referentes a grandes empreendimentos ou planos de desenvolvimento). Os subgrupos competentes para julgar determinados processos so os senados, que so constitudos de trs juzes de carreira e, no caso de debates judiciais, de dois juzes de cargos honorficos adicionais. As atribuies dos diversos senados so estipuladas em um organograma. O tribunal administrativo superior o Tribunal Administrativo Federal. Ele geralmente decide sobre as revises e sobre a aplicao correta do direito federal e , portanto, meramente uma instncia jurdica. Questes relativas ao direito nacional no so decididas por ele. Essas questes so de responsabilidade dos tribunais administrativos superiores. Em determinados casos, o Tribunal Administrativo Federal a primeira e ltima instncia de fato e de direito, por exemplo para litgios entre o governo federal e os governos estaduais, ou entre os governos estaduais entre si, ou no caso de aes nas reas do direito das associaes ou do controle sobre as companhias de seguro, assim como temporariamente tambm em processos relativos expanso das estradas nos estados da antiga Alemanha Oriental. Em questes disciplinares ou relativas ao servio militar, as decises cabem ao Tribunal Administrativo Federal como tribunal de apelao. Na sua condio de tribunal de recurso, o Tribunal Administrativo Federal composto de cinco juzes de carreira. Para decises fora da audincia, ele composto de trs juzes de carreira. Juzes honorrios apenas participam de questes disciplinares ou relativas ao servio militar.
Of the three categories pertaining to administrative jurisdiction (administrative judges, superior administrative court, federal administrative court), any superior administrative courts of the states, being courts of appeal, are responsible for rendering decisions on the appeals filed against the sentences proffered by the administrative judges and on the appeals filed against other sentences referring to the administrative sphere. Moreover, these are lower courts in case of certain types of litigation (i.e., litigation pertaining to large undertakings or development plans). The sub-groups having the necessary proximity to judge certain proceedings are the state senates which are made up of three career judges, and in the case of judicial debates, of two additional honorary judges. The prerogatives of the different senates have been stipulated in an organogram. The Federal Administrative court is the superior administrative tribunal. It generally proffers decisions about reviews and about the proper application of federal law, and they represent, therefore, merely a court level. Matters pertaining to national law are not decided by it. These matters fall under the responsibility of the superior administrative courts. In certain cases, the Federal Administrative Court is the first and the last court level in fact and pursuant to law, for instance, for litigations arising between the federal and the state governments, or between state governments themselves, or in case of lawsuits in the areas of law pertaining to associations or regarding control over insurance companies, as well as (temporarily) in regards to proceedings pertaining to the expansion of highways in the states located within the former East Germany. As regards disciplinary matters, or in regards to matters pertaining to military service, decisions are to be proffered by the Federal Administrative Court acting as an appeals court. In its capacity of appeals court, the Federal Administrative Court is made up of five career judges. Regarding decisions proffered outside the courtroom, the panel is made up of three career judges. Honorary judges only participate in disciplinary questions or in questions pertaining to military service.
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A JURISdIO dA CONSTITUCIONAL FEdERAL NA ESTRUTURA ALEM THE FEdERAL CONSTITUTIONAL JURISdICTION WITHIN THE GERMAN STRUCTURE
MICHAEL BETRAMS PRESIDENTE DO TRIBUNAL CONSTITUCIONAL DE NORDRHEIN-WESTFALEN PRESIDENT OF THE CONSTITUTIONAL COURT OF NORDRHEIN-WESTFALEN
I. INTRODUO Nem a Constituio Federal a Lei Orgnica , nem as constituies dos estados da Repblica Federal da Alemanha confiam na hiptese de que os conflitos relativos aos direitos constitucionais possam ser resolvidos por meio da autorresoluo. Ao contrrio: elas decidiram que os Tribunais Constitucionais, como instncias centrais, devem assumir a responsabilidade pela resoluo dos litgios relativos aos direitos constitucionais. Em outras palavras, elas se guiaram pela percepo de que o direito constitucional, sendo um direito fundamental, requer uma instituio que garanta seu absoluto cumprimento. Essa instituio a Jurisdio Constitucional.
I. INTRODUCTION Nor the Constitution of Germany the Organic Law nor the constitutions of the states of the Federal Republic of Germany entrust the hypothesis that the conflicts regarding the constitutional rights can be resolved through auto resolution. On the contrary, it was decided that the Constitutional Courts, as central instances, should take the responsibility for the resolution of the litigations relative to the constitutional rights. In other words, they were guided by the perception that the constitutional right, as a fundamental right, requests an institution to guarantee its absolute execution. This institution is the Constitutional Jurisdiction.
II. O RENASCIMENTO DA JURISDIO CONSTITUCIONAL ESTADUAL A PARTIR DA REUNIFICAO DA ALEMANHA A Jurisdio Constitucional Estadual tem uma tradio histrica importante nos estados alemes. Nesse sentido ela a irm mais velha da Jurisdio Constitucional Federal, que s comeou a ser aplicada em setembro de 1951, ou seja, dois anos aps a Lei Orgnica ter passado a vigorar, e a partir do momento em que o Tribunal Constitucional Federal deu incio s suas operaes. A Jurisdio Constitucional Estadual, no entanto, tem sido ofuscada pela presena de sua irm mais velha. Isso s mudou a partir de 1990 com a Reunificao Alem, que implicou uma reestruturao dos cinco estados alemes orientais. The State Constitutional Jurisdiction has a significant historical tradition in German states. In that sense, it is the older sister of the Constitutional Jurisdiction of Germany, that only began to be applied in September of 1951; in other words, two years after the Organic Law started to be in force, and starting from the moment in that the Federal Constitutional Court led off its operations. However, the State Constitutional Jurisdiction has been obscured by its older sisters presence for a long time. This only II. THE RENAISSANCE OF STATE CONSTITUTIONAL JURISDICTION SINCE THE REUNIFICATION OF GERMANY
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Em consequncia dessa reconstituio surgiram questes relativas Constituio alem e Jurisdio Constitucional Estadual, que acabaram se tornando o centro das atenes tanto no mbito da poltica quanto no da Justia. A razo disso est no processo de busca da prpria identidade dos novos estados alemes. Esse processo gerou uma intensa reflexo sobre as tarefas e a importncia das constituies estaduais e dos Tribunais Constitucionais Estaduais. Todos os 16 estados da Alemanha dispem de Tribunais Constitucionais Estaduais.
changed starting from 1990, through the German Reunification, that implicated a restructuring of the five oriental German states. As consequence of this recontruction, issues related to the German Constitution and the State Constitutional Jurisdiction arose, and both ended up becoming the center of attention politically and lawfully. The reason for this development is in the search process of the new German statesown identity. This process generated an intense reflection on the tasks and the importance of state constitutions and of State Constitutional Courts. However, all the 16 states of Germany have State Constitutional Courts.
III. A JUSTAPOSIO DAS REAS CONSTITUCIONAIS FEDERAL E ESTADUAL Na Alemanha, que organizada com base no sistema federativo, as reas constitucionais federal e estadual so independentes entre si e igualitrias, segundo a formulao do Tribunal Constitucional Federal. Disputas internas nos estados referentes a funes no exerccio do direito legislativo so decididas pelos respectivos Tribunais Constitucionais Estaduais. Em tais disputas no h abertura de via judicial para o Tribunal Constitucional Federal. Atos do poder estadual na execuo da lei federal tambm podem ser medidos na escala da Constituio Federal, quando a Lei Federal concede aos rgos e tribunais dos estados margem para a tomada de decises discricionrias, o que ocorre principalmente na execuo do direito processual federal do Cdigo de Processo Civil (Zivilprozessordung, ZPO), Cdigo de Processo Penal (Strafprozessordnung, StPO) e Cdigo de Procedimento Administrativo (Verwaltungsgerichtsordnung, VwGO). Nesse sentido tambm h que considerar os direitos fundamentais idnticos em contedo da Constituio Estadual. No caso de violao, suas decises podem e devem ser anuladas pelo Tribunal Constitucional Estadual.
III. THE JUXTAPOSITION OF THE FEDERAL AND STATE CONSTITUTIONAL AREAS In Germany - modeled in agreement with the federal system - the federal and state constitutional areas are independent amongst themselves and egalitarian, according to the formulation of the Federal Constitutional Court. Internal disputes in the states, that treat the functions in the exercise of the legislative right, are terminally resolved by the respective State Constitutional Courts. For such disputes, there wont be opening of judicial road for the Federal Constitutional Court. Actions of the state power in the execution of the Federal Law can also be measured in the scale of the Federal Constitution, when the Federal Law grants to the agencies and courts of the states maneuver margins and for the socket of discretionary decisions, what is mainly the case in the execution of the federal procedural right of Code of Civil Procedure (Zivilprozessordung, ZPO), Code of Criminal Procedure (Strafprozessordnung, StPO) and Code of Administrative Procedure (Verwaltungsgerichtsordnung, VwGO). In that sense, it is important to consider the fundamental rights of the State Constitution that are identical in content. In the case of violation, their decisions can and should be annulled by the State Constitutional Court.
IV. A COMPETNCIA DOS ESTADOS PARA A CRIAO DE TRIBUNAIS CONSTITUCIONAIS De acordo com o sistema federativo da Repblica Federal da Alemanha, deve-se partir da premissa de que tanto a Alemanha quanto seus estados so independentes. Expresso do carter nacional dos estados sua autonomia constitucional. A modelagem da ordem constitucional nos respectivos estados , portanto, fundamentalmente IV. THE COMPETENCE OF THE STATES FOR THE CREATION OF CONSTITUTIONAL COURTS In agreement with the federal system of the Federal Republic of Germany, it should break of the premise that as Germany as its states are independent. The expression of the national character of the states is
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de responsabilidade exclusiva deles. Devido a essa autonomia constitucional, eles tambm podem instituir seus prprios Tribunais Constitucionais.
their constitutional autonomy. Therefore, the modelling of the constitutional order in the respective states is fundamentally their exclusive responsibility. Due to that constitutional autonomy, they can also institute their own Constitutional Courts.
V. STATUS DOS TRIBUNAIS CONSTITUCIONAIS ESTADUAIS: TRIBUNAL E RGO CONSTITUCIONAL Para que os Tribunais Constitucionais possam proteger a Constituio de violaes e controlar o Parlamento e o governo a fim de dar validade Constituio, necessrio que diversas condies sejam satisfeitas. Em primeiro lugar, eles tero de manter uma posio independente do Parlamento e do governo, a fim de que suas decises no dependam da influncia poltica. Essa condio fundamental garantida pelo fato de os Tribunais Constitucionais dos Estados assim como o Tribunal Constitucional Federal terem dois status: eles so tribunais e ao mesmo tempo rgos constitucionais. Conforme estipulado no Artigo 92 da Lei Orgnica, eles funcionam como tribunais porque decidem independentemente sobre litgios concretos a pedido de uma das partes envolvidas. E, quanto ao status de rgos constitucionais, eles so assim qualificados porque so constitudos atravs da Constituio e por ela providos de competncias prprias, e porque fazem parte do poder soberano. Isso significa que dentro da estrutura de poder estadual os Tribunais Constitucionais dos Estados tm, no mnimo, o mesmo poder que as outras duas mais altas autoridades alems: o Parlamento e o governo estadual. Poder-se-ia afirmar que em termos de poder eles so at superiores, porque, de acordo com as responsabilidades a eles atribudas, eles tm o poder de revogar com efeito vinculativo as decises desses rgos, ou seja, as leis estipuladas pelo Parlamento ou as aes do governo. So that the Constitutional Courts can protect the Constitution of violations and also control the Parliament and the Government in order to give validity to the Constitution, it is necessary that several conditions are satisfied. Firt of all, they will have to maintain an independent position of the Parliament and of the Government, so that their decisions dont depend on the political influence. This fundamental condition is guaranteed by the fact that the Federal Constitutional Courts and the State Constitutional Courts as well as the Federal Constitutional Court have two status: they are courts and, at the same time, constitutional agencies. As stipulated in the article 92 of the Organic Law, they work as courts because they decide independently on concrete litigations at the request of one of the involved parts. And about of their status of constitutional agencies, they are qualified because they are constituted through the Constitution and provided of own competences by the same Constitution, and because they are part of the sovereign power. This means that, inside of the structure of state power, the State Constitutional Courts have, at least, the same power that the other two higher German authorities: the Parliament and the State Government. It could be affirmed that in terms of power they are superiors, because, through the responsibilities attributed to them, they have the power to revoke with vinculative effect the decisions of those agencies, in other words, the laws stipulated by the Parliament or the Governments actions. V. STATUS OF THE STATE CONSTITUTIONAL COURTS: COURT AND CONSTITUTIONAL AGENCY
VI. AS COMPETNCIAS MAIS IMPORTANTES DOS TRIBUNAIS CONSTITUCIONAIS ESTADUAIS Uma das condies fundamentais para o bom funcionamento da Jurisdio Constitucional, alm de sua independncia, dispor de uma quantidade suficiente de competncias para poder controlar os tpicos conflitos
VI. THE MOST IMPORTANT COMPETENCES OF THE STATE CONSTITUTIONAL COURTS One of the fundamental conditions for the good operation of the Constitutional Jurisdiction, besides its independence, is the one of disposing of an enough amount of competences to control the typical consti-
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constitucionais entre o Parlamento e o governo, e poder assumir a funo de mediadora nesses conflitos. H que diferenciar aqui entre as competncias registradas por escrito e aquelas que possuem grande relevncia prtica. Entre as principais competncias do Tribunal Constitucional de Nordrhein-Westfalen, figura a deciso sobre processos relativos a acusaes contra ministros. Nesses processos, que tm de ser iniciados pelo Parlamento, trata-se de verificar se um primeiro-ministro ou um ministro de Estado infringiu ou no, intencional ou negligentemente, a Constituio ou uma Lei. Assim sendo, o Tribunal Constitucional poder destitu-lo de seu cargo. Durante toda a sua existncia de quase 60 anos, o Tribunal de Nordrhein-Westfalen ainda no chegou a tratar de processos dessa natureza. A competncia para faz-lo, no entanto, acentua a forte posio que o Tribunal Constitucional ocupa dentro da estrutura do poder estatal. Ao contrrio do caso de acusao contra um ministro, as seguintes competncias dos Tribunais Constitucionais dos Estados tm grande importncia prtica: a responsabilidade pela fiscalizao jurisdicional da constitucionalidade das leis, por queixas municipais em relao constitucionalidade, e por litgios entre rgos pblicos. 1. Fiscalizao jurisdicional da constitucionalidade A fiscalizao jurisdicional da constitucionalidade das leis faz parte das responsabilidades centrais da Jurisdio Constitucional. Ela foi atribuda tanto ao Tribunal Constitucional de Nordrhein-Westfalen quanto a todos os outros Tribunais Constitucionais Estaduais, de duas formas: como fiscalizao jurisdicional da constitucionalidade abstrata, e como fiscalizao jurisdicional concreta.
a) Fiscalizao jurisdicional da constitucionalidade abstrata
tutional conflicts between the Parliament and the Government, and to assume the mediator function in these conflicts. It is necessary to differentiate here between the competences registered in writing and those that possess great practical relevance. Among the main competences of the Constitutional Court of Nordrhein-Westfalen it is the decision on processes relative to accusations against ministers. In these processes, which have to be initiate for the Parliament, it is verified if a Prime Minister or a Minister of State infringed or not, intentionally or carelessly, the Constitution or a law. So, the Constitutional Court can deprive him of his position. During all its almost 60 year-old existence, the Court of Nordrhein-Westfalen didnt treat of processes of that nature. Howevwe, the referred competence accentuates the strong position that the Constitutional Court occupies inside of the structure of the state power. Unlike the referred case of accusation against a minister, the following competences of the State Constitutional Courts have great practical importance: the responsibility for the jurisdictional fiscalization of the constitutionality of the law, for municipal complaints in relation to the constitutionality and for litigations among public agencies. 1. Jurisdictional fiscalization of the constitutionality of the law The jurisdictional fiscalization of the constitutionality of the law is part of the central responsibilities of the Constitutional Jurisdiction. So much for the Constitutional Court of NordrheinWestfalen as for all the other State Constitutional Courts, it was attributed in two ways: as jurisdictional fiscalization of the abstract constitutionality and as concrete jurisdictional fiscalization.
a) Jurisdictional fiscalization of the abstract constitutionality
No controle abstrato da constitucionalidade, os Tribunais Constitucionais tm de verificar, independentemente de um litgio concreto, se uma norma jurdica compatvel com a Constituio e tomar a devida deciso. No se trata de um processo contraditrio, mas de um processo objetivo, para o qual o requerimento do governo estadual ou, por exemplo, no caso de Nordrhein-Westfalen, o reque-
In the abstract control of the constitutionality, the Constitutional Courts have to verify, independently of a concrete litigation, if a rule of law is compatible with the Constitution and to make the decision. It is not a contradictory process, but an objective process for which the State Governments application or, for instance, in case of Nordrhein-Westfalen, the application of a third of the deputies of the Parlia-
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rimento de um tero dos deputados do Parlamento, apenas d impulso. Na prtica, geralmente a parte requerente a oposio. Alm das leis formais, outras leis da Constituio estadual tambm podero ser objeto do controle abstrato da constitucionalidade. Em outras palavras, o controle abstrato da constitucionalidade significa um procedimento objetivo e independente de direitos subjetivos, que visa proteo da constitucionalidade e proteo contra a ameaa ao direito, elucidando a situao constitucional. Em decorrncia de seu efeito sobre a legislao, ele geralmente tem grande peso poltico.
ment merely gave the pulse. In practice, the petitioning part is usually the opposition. Besides the formal laws, other laws of the State Constitution will also be able to be object of the abstract control of the constitutionality. In other words, the abstract control of the constitutionality means an objective and independent procedure of subjective rights, that seeks to the protection of the constitutionality and the protection against the threat to the right, elucidating the constitutional situation. Because of its effect in the legislation, it usually has great political weight.
b) Jurisdictional fiscalization of the concrete constitutionality
b) Fiscalizao jurisdicional da constitucionalidade concreta
Ao contrrio do controle abstrato da constitucionalidade, o controle concreto da constitucionalidade realizado por ocasio de um litgio durante as etapas de um processo judicial. Se um tribunal especializado julgar que uma lei decisiva para um determinado processo incompatvel com a Constituio, ele ter de interromper o processo, e consultar um Tribunal Constitucional a fim de que este decida sobre a validade da lei em questo. Em termos de frequncia, os controles abstratos da constitucionalidade so insignificantes. No estado de Nordrhein-Westfalen no houve caso parecido desde 1973.
Unlike the abstract control of the constitutionality, the concrete control of the constitutionality is accomplished by occasion of a litigation during the stages of a lawsuit. If a specialized court judges that a decisive law for a certain process is incompatible with the Constitution, it will have to interrupt the process and to consult a Constitutional Court so that this one decides on the validity of the law in subject. In frequency terms, the abstract controls of the constitutionality are insignificant. In the state of Nordrhein-Westfalen, there was not similar case since 1973. 2. Municipal complaints in relation to the constitutionality A special case of the fiscalization of the constitutionality is the municipal complaints in relation to the constitutionality. It usually part of local communities or authorities, that sustain the opinion that the domestic right - mainly a specific state law - violates their right of auto government, that is guaranteed to them by the Constitution. If that is really the case, then the Court will determine the incompatibility or the nullity of the law in subject. Until the end of the Eighties, the municipal complaints in relation to the constitutionality in Nordrhein-Westfalen were mainly processes related to the municipal restructuring. Nowadays, the most common processes are the ones that are related with the autarchy of the municipal districts for the local planning and, mainly, the ones that concern the financial provision of the municipal districts.
2. Queixas municipais em relao constitucionalidade Um caso especial da fiscalizao da constitucionalidade so as queixas municipais em relao constitucionalidade. A queixa geralmente parte de comunidades ou autoridades locais, que sustentam a opinio de que o direito nacional principalmente uma lei estatal especfica viola o seu direito de autogoverno, que lhes garantido pela Constituio. Se isso realmente estiver acontecendo, o tribunal determinar a incompatibilidade ou a nulidade da lei em questo. At o final da dcada de 1980, as queixas municipais em relao constitucionalidade em Nordrhein-Westfalen ligavam-se principalmente a processos relacionados reestruturao municipal. Hoje em dia os processos mais comuns so os relacionados com a autarquia dos municpios para o planejamento local, e principalmente os que dizem respeito proviso financeira dos municpios.
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No caso da autarquia dos municpios para o planejamento local, os processos geralmente tratam de litgios relacionados a conflitos de interesses, em que os interesses de planejamento das comunidades se chocam com os interesses de planejamento interregionais. Por exemplo: uma cidade planeja utilizar determinados espaos abertos pertencentes sua rea para a construo de casas ou de estabelecimentos comerciais. Em contraposio aos planos dessa cidade, o estado pretende utilizar o mesmo espao para a construo de um aterro sanitrio ou de uma planta para o tratamento trmico de resduos, ou mesmo inseri-lo em uma rea de proteo ambiental interregional. Nesse caso, que interesses de planejamento devem prevalecer? Os da cidade, ou os do estado? A segunda questo em termos de importncia dos casos mais frequentes de queixas municipais so os processos relativos ao financiamento dos projetos municipais. O ponto central desses processos o sistema de financiamento municipal, que extremamente complexo. Geralmente as disputas so travadas em torno de enormes somas de dinheiro. Nos ltimos tempos temos tido vrios processos em que as comunidades levantaram queixas constitucionais, alegando que sua responsabilidade pela execuo de determinadas tarefas oficiais no corresponde conexo/conectividade prescrita pela Constituio e que o Parlamento, portanto, no regulou suficientemente bem a questo do financiamento. Diante da dramtica situao financeira dos municpios, essa questo tem sido de suma importncia. 3. Litgios entre rgos pblicos Processos de grande importncia so os litgios entre rgos pblicos. Desde os anos 1990, eles tm sido a forma mais frequente de processo, logo atrs das queixas constitucionais municipais. Nesse tipo de processo os rgos soberanos especialmente o Parlamento e o governo estadual, como tambm as comisses do Parlamento e os partidos polticos podem travar disputas relativas a seus direitos e obrigaes segundo a Constituio estadual, e solicitar que os Tribunais Constitucionais esclaream se durante o jogo dos rgos polticos as regras do jogo foram respeitadas. Questo fundamental desse tipo de processo o controle e a limitao do poder poltico. Entre as decises mais impor-
In the case of the autarchy of the municipal districts for the local planning, the processes are usually litigations related to the conflict of interests, in which the planning interests of the communities are shocked with the inter-regional planning interests. For instance: a city plans to use certain spaces belonging to its area for the construction of houses or commercial establishments. In opposition with the plans of this city, the State intends to use the same space for the construction of a sanitary embankment or a project for the thermal treatment of residues, or even to insert it in an area of inter-regional environmental protection. In this case, which planning interests should prevail? The ones of the city or the ones of the State? The second subject in terms of importance of the most frequent cases of municipal complaints is the processes relative to the financing of municipal projects. The central point of these processes is the system of municipal financing, that is extremely complex. Usually, the disputes are locked around enormous sums of money. In the last times, we have been having several processes, in which the communities lifted constitutional complaints, alleging that their responsibility for the execution of certain official tasks doesnt correspond to the connection/ connectivity prescribed by the Constitution and that, theref ore, the Parliament have not regulated the subject of the financing sufficiently well. Before the dramatic financial standing of the municipal districts, this subject has been of addition importance.
3. Litigations among public agencies Processes of great importance are the litigations among public agencies. Since the Nineties, they have been the most frequent form of process, after the municipal constitutional complaints. In this process type, the sovereign agencies - especially the Parliament and the State Government, as well as the commissions of the Parliament and the political parties - can lock disputes relative to their rights and obligations according to the State Constitution, and also request that the Constitutional Courts explain if, during the game of the political agencies, the game rules were respected. Fundamental subject of this process type is the control and the limitation of the political power. Among the most important decisions of the Constitution-
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tantes do Tribunal Constitucional de Nordrhein-Westfalen em relao s disputas entre rgos polticos esto, por exemplo, o processo relativo implementao de comisses parlamentares de inqurito, e o processo relativo clusula de bloqueio de 5% do direito eleitoral. No primeiro processo, o tribunal decidiu que o Parlamento no tinha o direito de modificar, suprimindo partes essenciais, a reivindicao de minoria apresentada pela oposio para instituir uma comisso de inqurito. A importncia dessa deciso torna-se bem clara quando lembramos que os procedimentos de investigao assumem uma funo extremamente importante na democracia parlamentar. Eles possibilitam que os parlamentos, e especialmente a oposio, investiguem a questo independentemente do governo e dos rgos pblicos, podendo assim controlar a atuao destes, e principalmente esclarecer procedimentos de responsabilidade do governo e descobrir eventuais falhas. A deciso do tribunal em relao legitimao constitucional de uma clusula de bloqueio de 5% no direito eleitoral modificou substancialmente o cenrio poltico comunal em Nordrhein-Westfalen, o que resultou em perdas de maiorias absolutas em diversas sedes do Conselho Municipal, gerando consequentemente uma mudana de poder. Alm disso, ela no somente gerou mudanas nas leis em Nordrhein-Westfalen, como tambm teve repercusso em outros estados da Alemanha. 4. Queixas individuais em relao constitucionalidade Os Tribunais Constitucionais institudos nos cinco estados alemes orientais e em Berlim aps a Reunificao da Alemanha so tidos como o motor da prosperidade da Jurisdio Constitucional Estadual. Isso no se deve somente ao fato de que, no interesse de uma conscientizao sustentvel das estruturas constitucionais, as constituies desses estados possibilitaram que os prprios cidados tambm tivessem o direito de levantar uma queixa constitucional por violao de seus direitos fundamentais.
al Court of Nordrhein-Westfalen in relation to the disputes among political agencies, they are, for instance, the process relative to the implementation of inquiry legislative committees and the process relative to the clause of blockade of 5% of the electoral right. In the first process, the Court decided that the Parliament has not the right to modify the minority claim presented by the opposition to institute an Inquiry Commission, suppressing essential parts of it. The importance of this decision becomes very clear when it is noticed that the investigation procedures assume an extremely important function in the parliamentary democracy. They make possible that the Parliaments, and especially the opposition, investigate the subject independently of the Government and of the public agencies, controlling their performance and, mainly, explaining procedures of of the Government and discovering eventual flaws. The Court decision in relation to the constitutional legitimation of a clause of blockade of 5% in the electoral right substantially modified the communal political scenery in Nordrhein-Westfalen, that resulted in losses of absolute majorities in several headquarters of the city council, generating a change of power. Besides, it not only generated changes of the laws in Nordrhein-Westfalen, as well as it had repercussion in other states of Germany. 4. Individual complaints in relation to the constitutionality The Constitutional Courts instituted in the five oriental German states and in Berlin, after the Reunification of Germany, are considered the motor of the prosperity of the State Constitutional Jurisdiction. That do not only due to the fact that, in the interest of a maintainable understanding of the constitutional structures, the constitutions of those states have made possible that the own citizens also had the right of lifting a constitutional complaint because of the violation of their fundamental rights.
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A apresentao de uma queixa individual relativa constitucionalidade perante um Tribunal Constitucional Estadual foi possibilitada em 10 dos 16 estados alemes. A legislao do estado de Nordrhein-Westfalen at a presente data considerou suficiente que os cidados reivindiquem seus direitos fundamentais perante o Tribunal Constitucional Federal por meio da queixa constitucional. 5. Outras competncias Os Tribunais Constitucionais Estaduais tambm dispem de outras competncias, que lhes foram atribudas em parte por meio da prpria Constituio Estadual ou por meio de leis simples. Cabe mencionar como exemplo os processos relativos a escrutnios.
The rising of a individual complaint relative to the constitutionality in a State Constitutional Court was made possible in 10 of 16 German states. The legislation of the state of Nordrhein-Westfalen, until the present date, considered enough that the citizens demand their fundamental rights in the Federal Constitutional Court through the constitutional complaint. 5. Other competences The State Constitutional Courts also have other competences, that were partially attributed to them through the own State Constitution or through simple laws. It is important to mention as example the processes relative to scrutinies.
VII. A ORGANIZAO DOS TRIBUNAIS CONSTITUCIONAIS ESTADUAIS A organizao interna dos Tribunais Constitucionais dos diferentes estados muito variada. 1. Composio A composio dos diferentes Tribunais Estaduais difere bastante. O Tribunal do estado de Hessen, por exemplo, conta com 11 juzes, enquanto o Tribunal Constitucional de Nordrhein-Westfalen conta com apenas sete. Alm disso, ele tem a particularidade de que o presidente do Tribunal Administrativo Superior tambm assume, conforme a lei em vigor, a funo do presidente do Tribunal Constitucional, e de que, alm dos quatro membros a ele atribudos pelo Parlamento com um mandato de seis anos, os dois presidentes mais velhos dos Tribunais de Apelao do estado tambm lhe so subordinados. Todas as constituies estaduais tambm prescrevem a contratao de juzes leigos como opo adicional, mas o estado de Nordrhein-Westfalen jamais fez uso dessa opo. Em Nordrhein-Westfalen, assim como em outros estados, foram selecionados principalmente docentes universitrios da jurisprudncia, advogados ou juzes de jurisdies especializadas por exemplo, da jurisdio
VII. THE ORGANIZATION OF THE STATE CONSTITUTIONAL COURTS The internal organization of the Constitutional Courts of the different states is very varied. 1. Composition The composition of the different state courts differs a lot. The court of the state of Hessen, for instance, counts with eleven judges, while the Constitutional Court of Nordrhein-Westfalen counts with only seven. Besides, it has the particularity that the President of the Superior Administrative Court also assumes, according to the current law, the function of President of the Constitutional Court, and that, besides the four members attributed to it by the Parliament during a six year-old mandate, the two older Presidents of the Courts of Appeal of the State are also its subordinated. All of the state constitutions also prescribe the lay judges recruiting as additional option, but the state of Nordrhein-Westfalen never made use of this option. In Nordrhein-Westfalen, as well as in other states, it was mainly selected academical teachers of the jurisprudence, lawyers or judges of specialized jurisdictions for instance,
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social ou administrativa como membros votantes. Em comparao, os novos estados da Alemanha como Brandenburg h vrios anos vm contratando juzes leigos. Ao contrrio do Tribunal Constitucional Federal com suas duas turmas compostas de oito juzes cada, os Tribunais Constitucionais Estaduais em sua grande maioria dispem de apenas uma turma. Na maioria dos estados, os juzes constitucionais so votados pelos parlamentos estaduais com uma maioria de dois teros dos votos, sendo que o perodo eleitoral varia substancialmente entre os estados: no estado de Thringen o perodo eleitoral de cinco anos, enquanto o perodo eleitoral de Mecklenburg-Vorpommern de 12 anos. A reeleio permitida na maioria dos estados. 2. Liberdade das Jurisdies Os rgos constitucionais entre si so independentes e igualitrios. Por essa razo, os Tribunais Constitucionais Estaduais no esto subordinados a uma determinada jurisdio do governo estadual. Por estarem em uma posio igual em direitos, os Tribunais Constitucionais tm o direito de se corresponder diretamente com outros rgos constitucionais, sem ter de respeitar qualquer via de correspondncia oficial por meio de instncias ministeriais. 3. Autonomia quanto ao regulamento interno Da independncia dos rgos constitucionais deriva, alm disso, o direito de regular os assuntos privados atravs de seu prprio regulamento interno. Objetos do regulamento interno poderiam ser, por exemplo, a organizao e o procedimento de trabalho interno. No entanto, os Tribunais Constitucionais no so autorizados a modificar as competncias e responsabilidades que lhes foram atribudas por lei, atravs do regulamento interno, ou mesmo a ampliar suas reas de atuao perante as pessoas envolvidas em um processo.
of the social or administrative court as voting members. In comparison, the new states of Germany, such as Brandenburg, during several years are hiring lay judges. Unlike the Federal Constitutional Court with its two senates composed of eight judges each, the State Constitutional Courts, in their great majority, dispose of only a council. In most of the states, the constitutional judges are voted by the state Parliaments with a majority of two thirds of votes, and the electoral period substantially varies among the states: in the state of Thringen, the electoral period is of five years, while the electoral period of Mecklenburg-Vorpommern is of twelve years. The reelection is allowed in most of the states. 2. Freedom of Jurisdictions The constitutional agencies, amongst themselves, are independent and equalitarian. For this reason, the State Constitutional Courts are not subordinated to a certain jurisdiction of the State Government. Because they are in a position of equality of rights, the Constitutional Courts have the right to correspond directly with other constitutional agencies, without having to respect any road of official correspondence through ministerial instances. 3. Autonomy in relation to the internal regulation Besides, the right of regulating the private subjects through their own internal regulation drifts of the independence of the constitutional agencies. Objects of the internal regulation could be, for instance, the organization and the procedure of internal work. However, the Constitutional Courts are not authorized to modify the competences and responsibilities that were attributed to them by law, through the internal regulation, or even to enlarge their areas of performance before the people involved in a process.
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4. Oramento O oramento do estado cabe ao Parlamento, enquanto a iniciativa financeira, em virtude de lei no escrita, cabe ao governo do estado. A autonomia financeira dos Tribunais Constitucionais Estaduais, apesar de seu status como rgo constitucional, no possvel. Sua autonomia perante outros rgos constitucionais, no entanto, requer que eles ao menos exeram determinada influncia nos recursos financeiros a eles concedidos, e que disponham deles a seu livre critrio. Todos os Tribunais Constitucionais Estaduais tm essa garantia. Embora o oramento do Tribunal Constitucional de Nordrhein-Westfalen no preveja um plano oramentrio prprio e esteja sujeito ao plano oramentrio do primeiro-ministro, essa questo no tem representado qualquer problema at a presente data, visto que o presidente do Tribunal Constitucional dispe do direito de proposta e, alm disso, do direito de expor sua opinio sobre a proposta perante a comisso de finanas e de oramento do Parlamento. At a presente data no houve registro de qualquer conflito em relao ao assunto.
4. Budget The states budget is made by the Parliament, while the financial initiative, because of law not written, is made by the State Government. A financial autonomy of the State Constitutional Courts, in spite of their status as constitutional agency, is not possible. However, their autonomy before other constitutional agencies request that they at least exercise certain influence in the financial resources granted to them, and that they have them according their free criterion. All of the State Constitutional Courts have this warranty. Although the budget of the Constitutional Court of Nordrhein-Westfalen doesnt foresee an own budget plan and was subject to the Prime Minister budget plan, this subject has not been representing any problem nowadays, because the President of the Constitutional Court has the proposal right and, besides, of the right of exposing his opinion on the proposal before the Commission of Finance and Budget of the Parliament. Until the present date, there was not registration of any conflict in relation to the subject.
VIII. AVALIAO E CONCLUSO Os estados da Repblica Federal da Alemanha no funcionariam mais sem a Jurisdio Constitucional Estadual. Mesmo estando exposta a diversas crticas, ela a guardi da Constituio e respeitada por todos os rgos constitucionais estaduais, que tm influenciado substancialmente o direito e a realidade constitucional em todos os estados. Em outras palavras, a Jurisdio Constitucional Estadual faz parte do governo federal; ela tem representado a boa conscincia do poder pblico por garantir a vigncia do direito, a paz, a integrao e a estabilidade.
VIII. EVALUATION AND CONCLUSION The states of the Federal Republic of Germany would not work more without the State Constitutional Jurisdiction. Even being exposed to several critics, it is the guardian of the Constitution and respected by all of the constitutional agencies of the states, that have been influencing the constitutional right and reality substantially in all of the states. In other words, the State Constitutional Jurisdiction is part of the Federal Government; it has been representing the good conscience of the public power for guaranteeing the validity of the right, the peace, the integration and the stability.

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FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)

FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)

FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)

FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)

FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)

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FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)

FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)

FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)

FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)

FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)

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FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)

FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)

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6. INSTEAD OF A CONCLUSION, A RETURN TO THE FUTURE

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FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)

O GERENCIAMENTO dEMOCRTICO dA GESTO PbLICA THE dEMOCRATIC MANAGEMENT OF PUbLIC MANAGEMENT

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FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)

FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)

FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)

A GESTO ESTRATGICA E A OTIMIZAO dE PROCESSOS STRATEGIC MANAGEMENT ANd PROCESS OPTIMIZATION

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b) Fiscalizao jurisdicional da constitucionalidade concreta

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FGV PROJETOS | FGV/EBAPE | INSTITUTO BRASILIENSE DE DIREITO PBLICO (IDP)

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